MASTER 

NEGATIVE 
NO.  94-82279 


COPYRIGHT  STATEMENT 


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Author: 


Arnold,  Bion  Joseph 


Title: 


Report  on  the 
improvement  and 

Place: 

San  Francisco 

Date: 

1913 


RESTRICTIONS  ON  USE: 


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COLUMBIA  UNIVERSITY  LIBRARIES 
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BIBLIOGRAPHIC  MICROFORM  TARGET 


MASTER   NEGATIVE  * 


ORIGINAL  MATERIAL  AS  FILMED  -    EXISTING  BIBLIOGRAPHIC  RECORD 


Ar63 


Arnold,  Bion  Joseph,  1861- 

Report  on  the  improtrement  and  development  of  the  trans- 
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KKOXTISIMKCK    I!.      UKMKI'    MAP    OF    SAN     l-UAXCISO)    WITH    DISTRT  lUTI" 'N  <>l'  I'OITI.ATK  ).\   I\   1910  AM)  UAILWAV   LINKS  PKKSEXT  AND  PROPOSED. 

This  map  affords  a  f?raphJc  picture  of  the  intUicncc  of  existing  topography  i  the  settlement  ot  the  city,  and  the  absolute  dependence  of  the  people  upon  transit 

lines.     One  dot  represents  2(X)  people,  based  on   sleeping  population  only,  as  deti  nined  by  the   1910  census   for   each   enumeration  district.     The  unsettled   areas   of 

San  Francisco  arc  clearly  distinguishable,  also  the  extensions  thereto  planned  fo''  >oth  present   and   future  construction.     Contours  are   shaded   in   at  20-foot   levels, 
and  tunnel  projects  are  indicated  by  white  lines. 


I 


REPORT 


ON  THE 


^ 


IMPROVEMENT  AND  DEVELOPMENT 


OF  THE 


TRANSPORTATION  FACILITIES 


OF 


t 


SAN  FRANCISCO 


SUBMITTED  TC  THE 


« 


»         •     t    »     •      »        ' 


#1./  t  a      » 


MAYOR 


•  / 


'.  .■  .     :  .      ,     AND  THE 


BOAI^D  OF  SUPERVISORS 

City  of  San  Francisco 


» » »  »  » • 


BY 


BION  J.  ARNOLD 

Consulting  Engineer 


Saa  Francisco,  March,   1913 


Price  $1.00 


IS  lA^ 

CONTENTS 

Letter  of  transmittal. 

Condensed  summary  of  recommendations  and  important  exhibits. 

Brief  review  of  entire  report,  by  chapters. 

Part  I— General  Program  ^^^^ 

Chapter  >> 

1.  Present  Transportation  Conditions.* ^ 

2.  Growth  of  Earnings  and  Transit  Investment* 15 

Estimates  of  future  growth  in  population. 
Prediction  of  future  earnings  and  extensions. 
Purchasing  power  and  railway  investment. 
Record  of  business  and  railway  growth. 

3.  Development  of  Transit  System 39 

Unified    and    municipal    lines.* 

Rapid  transit  development. 

Facilities   for  Panama-Pacific  Exposition.* 

4.  Plan  of  Procedure  for  the  City 77 

Franchises,  financing  and  control. 
Interpretation  of  Resettlement  Franchise  Phn. 

Part  II— Service  and  Routing 

5.  Traffic  and  Service  in  thVLoadijI]^.  District.*.  •  •  ' 95 

Results  of  traffic  coufits:'  .•*'-''  ^    ••  • 
Analysis  of  rush  hour  service. 

6.  Relief  of  Lower  Market  Street* 117 

Methods  of  operation. 

Development  of  four-track  operating  plan. 

7.  Rerouting  and  Service  Distribution 14-1 

Rerouting  terminal  district. 
Rerouting  outlying  district. 
Service  redistribution. 
Routing   municipal   system. 
General  service  improvements. 

Part  III — Improvements  in  Rolling  Stock 

8.  Design  of  New  RoUing  Stock.* .^ 177 

Municipal  railway  car. 
United  Railroads  1912  car. 

♦Previously    presented    as    preliminary    reports. 


f    , 


CONTENTS 
Chapter  Pag* 

9.     Improvements  in  Existing  Rolling  Stock.* 197 

Methods  of  increasing  speed  of  prepay  operation. 
Report  on  brake  equipment. 

Part  IV — Improvements  in  City  Plan 

10.     Tunnels  into  Harbor  View.* 217 

{^  >     11.     Market  Street  Extension  Tunnel  under  Twin  Peaks.* ....  225 
,    \\  Location  and  alignment. 

10  Type  and  general  design. 

^  12.     Street  and  District  Improvements 271 

^  :r  Extensions,  widenings,  cuts,  fills,  etc. 

^    % Supplemental  tunnel  projects. 

J^     13.     Ferry  Terminal  Improvements  at  Harbor  Front 295 

^\^  Plans  for  permanent  relief  of  congestion. 

Minimum  improvements  to  be  considered. 

I* 

^  Part  V — Railway  Operation  and  Records 

^         14.     Analysis  of   Financial  and  Operating  Records 315 

^  Capital  investment  and  betterments. 

**  Trr.ffic,  earnings  and  expenses. 

15.  Condition  of  Physical  Property 339 

Results  of  property  inspection. 
Analysis  of  maintenance  of  rolling  stock. 

Part  VI — Franchise  and  Legal  Matters 

16.  Charter  Amendment  No.  34.* 359 

Discussion  of  underlying  principles. 

17.  General  Franchise  Ordinance ^7^ 

Essential   requirements,  new  and  resettlement  franchises. 

18.  Present  Franchise  Status 393 

Legal  questions  involved. 

19.  Report  on   Taxable   Mileage.* -401 

Prescribing  methods  of  determining  basis  of  taxation. 

Appendix 

Review  of  Transit  Developments  in  San  Francisco 411 

Text  of  Charter  Amendment  34.*; 430 

General  Index  of  Report  and  Exhibits  451 

Statistical  exhibits  and  plates  accompanying  report. 

•Previously   presented    as    preliminary    reports. 


OFFICIALS,  CITY  OF  SAN  FRANCISCO 

JAMES  ROLPH.  JR..  MAYOR 


BOARD  OF  SUPERVISORS 


Paul  Bancroft. 
GuiDO  E.  Caglieri. 
Andrew  J.  Gallagher 
George  E.  Gallagher. 

A.  H.  GlANNINI. 

J.  Emmet  Hayden. 
Fred  L.  Hilmer. 
Oscar  Hocks. 
Thomas  Jennings. 

John 


MEMBERS 

Adolf  Koshland. 

Byron  Mauzy. 
William  H.  McCarthy. 
Ralph  McLeran. 
Charles  A.  Murdock. 
Daniel  C.  Murphy. 
Edward  L.  Nolan. 
Henry  Payot. 
Alexander  T.  Vogelsang. 
S.  Dun  NIG  AN,  Clerk. 


^ 


I 


LETTER  OF  TRANSMITTAL 

To  the  Honorable  Mayor 

and  Board  of  Supervisors, 

City  and  County  of  San  Francisco. 
Sirs : 

In  compliance  with  the  engineering  commission  entrusted  to 
me  through  Resolution  No.  8725  (New  Series),  and  subsequent 
resolutions,  to  "advise  the  Board  of  Supervisors  as  to  what  action 
it  should  take  in  order  to  improve  the  transportation  facilities  of 
this  city,"  I  have  the  honor  to  present  in  this  final  report  my  con- 
clusions and  recommendations  in  full  upon  the  transportation 
problem  of  San  Francisco. 

Owing  to  the  necessarily  comprehensive  character  of  this  investi- 
gation, and  the  special  subjects  submitted  to  me  for  study,  I  have 
deemed  it  expedient  to  submit  to  you  from  time  to  time  preliminary 
reports  on  subjects  of  greatest  urgency,  all  of  which,  revised  to  suit 
the  conditions  as  they  now  exist,  are  included  herein. 

Some  of  these  special  studies,  such  as  tunnels  and  subways, 
while  urgent,  were  somewhat  foreign  to  the  immediate  subject 
of  transit  improvements ;  but  the  necessities  of  the  moment,  largely 
due  to  the  pressure  of  work  entailed  upon  your  City  engineering 
department  by  the  Hetch  Hetchy  investigation,  relating  to  water 
supply,  necessitated  undertaking  much  routine  work  which  con- 
siderably delayed  the  major  work  in  hand. 

The  expenses  of  this  investigation  have  been  approximately 
detailed  as  follows  in  order  that  you  may  have  a  proper  understand- 
ing of  its  scope  and  the  advisability  of  its  having  been  continued 
to  finality: 

Rapid  Transit  Tunnels  and  Subways 19% 

Franchise  Plan  and  Charter  Amendments 14% 

Traffic  and  Service  Survey   13% 

United  Railroads,  Investigation  of  System 21% 

Municipal  Cars  and  System,  Exposition  Transporta- 
tion, Improvements  in  City  Plan,  Future  Growth 
of  District,  Steam  and  Water  Terminals,  and 
Research  and  General  Office  Work 33% 

100% 

Many  valuable  suggestions  and  criticisms  have  been  tendered 
by  the  various  civic  bodies  and  individual  citizens,  and  to  them  I 


1 


VI 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


LETTER  OF  TRANSMITTAL 


VII 


hereby  extend  my  appreciation,  as  well  as  to  my  local  organization 
for  faithful  performance  of  the  arduous  duties  of  this  investigation. 
As  far  as  permissible,  considering  the  special  training  required, 
I  have  endeavored  to  organize  this  local  force  from  San  Francisco 
men  having  direct  knowledge  of  your  city. 

The  report  is  presented  in  sections  to  permit  of  convenient  sub- 
division of  such  a  comprehensive  subject,  and  according  to  my 
understanding  of  your  needs,  supplemental  discussions  of  the  more 
important  phases  have  been  included  with  a  view  of  presentmg 
cogent  reasons  for  my  conclusions  and  recommendations.  Other- 
wise, many  of  these  conclusions  might  not  be  evident,  or  might 
be  entirely  misunderstood.  For  the  benefit  of  those  desiring  only 
a  broad  view  of  the  subject  there  follows  in  the  ''General  Review"  a 
resume  of  the  salient  points  discussed  later  in  detail. 

In  the  course  of  this  major  investigation,  both  the  present 
and  future  needs  of  your  city  have  been  exhaustively  studied  with 
due  regard  for  the  lessons  of  the  past.  Definite  recommendations 
are  made,  in  all  cases  bringing  to  bear  upon  local  problems  experi- 
ence gained  in  the  investigation  of  similar  ones  in  other  cities.  And 
I  have  especially  endeavored  to  develop  a  transit  plan  upon  these 
broader  lines,  although  necessarily  giving  due  consideration  to  the 
minor  needs  of  the  present. 

The  only  limitations  experienced  have  been  due  to  the  incom- 
pleteness of  essential  records,  both  of  City  and  Company,  partly 
through  the  results  of  their  destruction  in  the  great  fire.  These 
limitations  debar  conclusions  as  to  the  corporate  financial  status 
of  the  United  Railroads,  which  however  is  a  matter  entirely  in  the 
hands  of  the  State  Railroad  Commission,  according  to  my  inter- 
pretation of  the  Public  Utilities  Act,  and  is  not  directly  involved 
in  or  within  the  scope  of  the  determination  of  service  under  the 
regulative  powers  of  the  municipality. 

After  much  study  of  the  existing  transit  system,  I  am  convinced 
that  the  franchise  situation  is  by  far  the  major  factor  in  the  solu- 
tion of  present  and  future  traction  difficulties,  upon  which,  in  my 
judgment,  immediate  efforts  should  be  centered.  The  "Chicago 
plan,^'  when  perfected  in  the  light  of  direct  experience  with  its  opera- 
tion' holds  in  my  opinion  the  fullest  possible  measure  of  hope  for  a 
greater  San  Francisco,  unified  under  such  a  plan  of  logical,  har- 
monious development.  After  exhaustive  study  of  alternatives,  I 
firmly  believe  that  under  its  present  financial  organization,  your  city 
will  be  able,  by  this  means,  to  realize  sooner  than  by  any  other  the 
manifest  desire  of  its  citizens,  as  definitely  expressed  in  your 
Charter  and  the  platform  of  your  last  municipal  campaign— namely, 
ultimate  municipal  ownership. 


Throughout  this  work,  I  have  endeavored  to  maintain  an  ab- 
solutely impartial  frame  of  mind  as  between  municipal  and  cor- 
porate interests,  with  a  view  of  conserving  to  the  greatest  possible 
extent  the  best  interests  of  your  citizens,  which  in  the  end  constitute 
the  sole  object  of  municipal  government;  and  no  prejudicial  criticism 
has  had  the  slightest  weight  in  the  determination  of  conclusions 
reached. 

I  desire  to  express  my  appreciation  of  the  co-operation  of  your 
Honorable  Body,  the  officials  of  the  United  Railroads  in  traction 
matters,  and  of  the  Southern  Pacific,  Key  Route,  and  Northwestern 
Pacific  systems  relative  to  commuter  travel ;  for  in  the  absence  of  the 
voluminous  data  submitted  relative  to  property  and  operations,  this 
investigation  would  have  been  seriously  handicapped.  This  com- 
pliance in  an  impartial  investigation  and  criticism  confirms  my  belief 
that,  in  spite  of  past  misfortunes,  the  company  first  mentioned,  as  well 
as  those  in  many  other  cities,  would  welcome  and  participate  in  a  rea- 
sonable, sane,  and  just  solution  of  the  present  difficulties,  in  order 
that  the  interests  of  both  the  Public  and  the  Investor  may  be  con- 
served and  developed  to  the  fullest  possible  extent. 

• 

Respectfully  submitted. 


Consulting  Engineer. 


San  Francisco,  March  31st,  1913. 


GENERAL  PROGRAM  OF  TRANSIT  DEVELOPMENT 

I— FOR  THE  CO-OPERATION  OF  CITY  AND  COMPANY 

Negotiate  some  form  of  resettlement  franchise  with  indeterminate, 
amortizing,  profit-sharing  and  regulative  features. 

Agree  upon  a  reasonable  apportionment  of  extensions,  between 
private  and  municipal  lines,  or  else  a  basis  of  rental. 

Establish  a  combined  operating  plan  for  lower  Market  Street,  with 
improvements  in  location  and  type  of  safety  stations. 

Establish  an  improved  plan  for  routing  and  distribution  of  service 
in  accordance  with  traffic  requirements. 

Follow  plan  of  most  direct  radial  trunk  lines  and  distinct  cross- 
town  laterals,  as  far  as  permitted  by  street  layout. 

Establish  alternate  stops  in  short-block  districts,  and  fast  limited 
service  to  suburbs. 

Perfect  City  ordinances  so  as  to  remove  unnecessary  restriction-* 
and  facilitate  passenger  transit. 

Provide  for  through  route  plan  of  operation  with  suitable  rentals 
for 'use  of  municipal  tracks. 

Standardize  rolling  stock,  preferably  to  the  Chicago  standard  of 
car  width  and  track  centers,  so  as  to  preserve  maximum  road- 
way. 

Develop  special  type  of  car  for  hill  service. 

Work  out  plans  for  universal  transfers  and  track  rentals,  to  provide 
direct  transportation  to  the  Exposition  for  a  single  fare. 

Expand  and  perfect  present  surface  lines  so  as  to  provide  feeders 
to  an  ultimate  rapid  transit  system. 

Develop  jointly  with  Ocean  Shore  and  Southern  Pacific  Companies 
electrification  of  existing  steam  lines  for  suburban  transporta- 
tion. 

Develop  new  union  railroad  terminal  station  suitable  for  such, 
electrification. 

Develop  cross-town  service  lines  with  transfer  facilities. 

II— FOR  THE   COMPANY 

Defer  secondary  dividends  until  property  is  built  up  to  a  proper 

standard. 
Increase  appropriation  for  general  repairs  and  maintenance. 
Provide  an  adequate  depreciation  reserve   fund  in  cash  or  quick 

assets. 
Increase   rehabilitation    schedule,   especially   on    track   work,   until 

the  system  is  fully  standardized. 
Plan  for  the  building  of  70  miles  of  extensions  now  necessary  as 

soon  as  franchise  conditions  permit. 


GENERAL  PROGRAM 


IX 


Extend  thereafter  at  least  in  proportion  to  the  growth  in  population 

until  development  of  surface  system  approaches  sufficiency. 
Provide  immediately  for  85  additional  modern  cars  now  necessary, 

i.  e.,  20  more  than  now  ordered. 
Increase  equipment  at  least  35  cars  per  year  (cumulative),  or  more 

if  service  standards  require. 
Rebuild  non-prepay  cars,  improve  prepay  platforms,  or  retire  obsolete 

equipment  from  regular  operation. 
Enlarge  inadequate  cable  equipment  for  double-end  operation. 
Institute  recommended  improvements  in  service  and  of>eration. 
Enforce  revised  trainmen's  rules  for  the  operation  of  cars. 
Designate  and  adhere  closely  to  fixed  stopping  points. 
Continue  traffic  observations  in  order  to  maintain  definite  service 

standards  developed  herein. 

Ill— FOR  THE  CITY 

Enact  transit  regulative  ordinance  based  on  findings  of  this  report, 

for  improvement  of  service,  equipment  and  operation. 
Establish   advisory   transit   bureau    for   investigation,    record    and 

maintenance  of  service  standards. 
Formulate  a  general  franchise  ordinance  operative  under  Charter 

Amendment  34. 
Re-submit  Charter  Amendment  34  at  earliest  possible  date. 
Re-submit  amendment  creating  an  impartial  technical  commission 

for  the  regulation  and  administration  of  utilities. 
Re-submit   amendment   exempting   revenue-producing  bonds   from 

municipal  debt  limit. 
Construct  Harbor  View,  Twin  Peaks,  and  possibly  Church  Street 

tunnels  as  soon  as  possible. 
Organize  City  Planning  Commission  to  carry  out  needed  improve- 
ments for  facilitating  rapid  car  operation. 
Enforce  contour  plan  of  subdivision  of  hillside  property. 
Extend  traffic  regulation  to  cover  size  and  type  of  vehicles  and 

plan  of  special  traffic  routes. 
Develop  definite  transit  policy  that  will  invite  private  investment 

until  purchase  of  utilities  becomes  possible. 
Consider  Metropolitan  District  Control  for  Bay  cities  and  commuter 

district. 

IV— FOR  THE   PUBLIC 

Avoid  accidents  by  not  boarding  or  alighting  from  cars  when  in 

niotion. 
At  heavy  loading  points  where  extra  conductors  are  stationed,  use 

forward  as  well  as  rear  entrance. 
Facilitate  t^pid  loading  by  having  the  exact  fare  ready. 


i> 
ll 


X  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

Avoid  delay  by  signaling  for  a  stop  before  the  street  desired  is 

reached. 
Form   the   habit   of   moving   forward   in   the   car   promptly,   thus 

encouraging  others  to  do  likewise. 
Smokers  use  only  forward  open  sections,  to  reduce  congestion  at 

the  rear. 
Use  the  forward  exit  gate  under  ordinary  circumstances. 
Avoid  abuse  of  transfer  privilege  by  stop-overs  or  round-trip  riding 

on  a  single  fare. 
Do  not  expect  all  routes  in  the  city  to  be  run  on  Market  Street. 
Consider  one  block's  walk  to  a  car  line  as  reasonably  convenient 

service,  and  no  hardship. 
Do  not  insist  on  the  imposition  of  special  stops  upon  an  already 

slow  schedule. 
Report  promptly  to  the  Company  serious  infractions  of  discipline. 


LIST  OF  IMPORTANT  EXHIBITS 

Figure                                                           .  Page 
Front-  Relief  map  with  distribution  of  population  and  rail- 
ispiece.     way  extensions,  unified  system. 

1.    Future  population,  S.  F.  and  commuter  district 19 

5.    Analysis  of  growth,  earnings  and  purchasing  power. .  30 

10.    Relief  map,  competitive  municipal  system  extensions.  47 

16.    Harbor  View  service  lines — unified  plan  with  tunnels .  63 

20.    Distribution  of  income — City,  Company,  and  Labor..  84 

22.    Financial  results  of  Charter  Amendment  34 89-90 

26.    Variations  in  service  standards  during  rush  hours...  114 

29.    Comparative  study  of  loading  speed  of  cars 126 

34.    CartraflFiconMarketSt.,4-track  operation,  Plan  A..  134 

37.    Terminal  routing  plan  for  loading  district 146 

41.    Typical  record  of  traffic  and  earnings  by  routes 167 

69.  Traffic  and  transit  tunnel,  Mission-Sunset  project. . .  269 

70.  Relief  map  showing  slopes  over  10%  and  25% 273 

76-77.    Cross-sections  of  business  streets,  showing  arcade...  282 

87.  Boat  arrivals  and  car  service  at  the  Ferry 306 

88.  Corporate  relationships.    Street  railway  "family  tree."  320 

89.  Record  of  income  account  and  expenditures  since  1900  324 

90.  Comparative  distribution  of  expenditures  by  years. . .  327 
98.    Record  of  car  maintenance  expenditures — U.  R.  R. . .  354 

Plate 

9.    Passenger  distribution  by  streets  during  rush  hour. 

10.  Recommended  4-track  operating  plan  for  Market  St. 

11.  General  arrangement  and  design  of  Municipal  Ry.  car. 


GENERAL  PROGRAM 
Plate 

12.  Improvements  in  platform  and  seating  plan,  U.  R.  R. 

cars. 

13.  General  plan  and  profile  of  Twin  Peaks  tunnel. 

17.    Effect  of  Twin  Peaks  tunnel  on  local  running  time. 

19.  Plans  for  increasing  Ferry  terminal  capacity. 

21.  Present  status  of  all  railway  franchise  grants. 

22.  Franchise  expirations,  from  official  franchise  records. 
Table 

8.  Record  of  growth  in  track  mileage. 

9.  Approximate  cost  of  extensions  program. 

10.    Description  of  streets  traversed  by  extensions. 

14.  Improvements   in   City   Plan   for   transit   extensions. 
17.    Suggested  routes  with  tunnels. 

20.  Recommended  operating  capacity  of  car  equipment. 
22.    Present  standards  of  service  during  rush  hours. 

24.    Complete  operating  car  schedules,  by  routes. 

26.    Rerouting  and  service  redistribution,  United  Railroads. 

28.    Average  passenger  ride,  by  routes. 

33.    Comparative  balance  sheet,  United  Railroads. 

35.    Statement  of  bonded  and  other  debt,  United  Railroads. 

41.  Analysis  of  income  account  from  1900,  United  R.  R. 

42.  Distribution  of  operating  expenses  by  years,  U.  R.  R. 
50a.  Comparative  records  of  car  and  passenger  traffic. 
50b.  Miles  of  single  track. 

52.    Derived  results  from  analysis  of  operating  records. 
55.    Franchise  expirations. 


XI 


, 


i 


GENERAL  REVIEW  OF  REPORT 

In  the  following  topical  review,  space  forbids  more  than  the  briefest 
mention  of  what  may  be  termed  the  **mile  posts"  in  the  development  of  an 
adequate  transit  plan  for  San  Francisco.  To  facilitate  convenient  reference, 
the  same  order  of  treatment  has  been  followed  as  in  the  main  report,  each 
chapter  of  which  itself  comprises  a  summary^  of  conclusions  and  recommenda- 
tions. It  is  expected  that  only  a  general  impression  of  the  magnitude  and 
scope  of  the  problems  confronting  the  City  will  be  obtained  from  this  re- 
view, which  has  been  prepared  for  those  who  have  not  the  time  to  study 
the  report  in  detail. 


PART  I.— GENERAL  PROGRAM 

Present  Transportation  Conditions.  San  Francisco  differs 
entirely  from  most  cities  of  the  East  in  having  achieved  its  rapid 
development  within  the  short  space  of  sixty  years.  It  unquestion- 
ably faces  a  still  greater  growth  as  a  direct  result  of  the  Panama 
Canal.  And  the  city  has  been  greatly  handicapped  in  its  proper 
development  by  the  lack  of  appreciation  of  the  problems  of  the  fu- 
ture, as  well  as  lax  municipal  control,  and  failure  of  the  utilities  to 
keep  pace  with  the  city's  rapid  growth  in  the  past.  This  especially 
concerns  transportation,  which  must  precede  settlement.  While  the 
climatic  conditions  are  ideal,  the  rugged  topography  has  resulted 
in  isolation  of  local  districts,  which  absolutely  requires  the  construc- 
tion of  tunnels  and  the  execution  of  a  City  Plan  that  will  correct 
present  obvious  errors  by  means  of  wider  streets  and  contour  sub 
division  of  property.  Only  by  thus  welding  together  these  districts 
will  it  be  possible  to  conserve  the  unusual  liberality  of  its  citizens, 
as  exhibited  in  the  high  street  railway  earnings  per  capita,  for  the 
prime  objects  of  civic  expansion,  with  one  city,  one  fare,  universal 
transfers,  centralized  operation,  minimum  investment,  and  finally 
municipal  ownership  if  the  city's  present  policy  continues  to 
prevail.  Eventually  a  Metropolitan  District  plan  of  control 
of  utilities  and  industries  may  then  be  developed.  The  inability 
of  this  city  to  secure  utility  extensions  simply  brings  into  the  lime- 
light the  fundamental  defects  of  the  present  situation — complicated 
franchises,  impossible  charter  provisions,  unexercised  regulative 
powers,  uncertain  stability  of  investment,  deferred  rehabilitation  of 
property,  curtailment  of  service,  and  lack  of  confidence  in  present 
and  future.  In  the  meantime,  surrounding  communities  are  capitaliz- 
ing this  uncertainty,  assisted  by  concessions  in  fare  and  time  of 
transit  denied  to  San  Francisco's  logical  outlet — ^the  Peninsula — 


XIV 


SAN   FRANCISCO  TRANSPORTATION   FACIUTIES 


through  lack  of  adequate  transit  facilities.  The  obvious  and  only  cer- 
tain remedy  lies  now  within  the  power  of  the  City  by  grasping  its 
opportunities  before  it  is  too  late  and  effecting  a  solution  not  piece- 
mealj  but  based  upon  the  broader  lines  of  effort  indicated  in  this  re- 
port. 

Growth   of  City   and  District.         San  Francisco's  present 
problem  deals  with  a  metropolitan  city  of  a  half-million,  and  a  trib- 
utary   commuter    district    of    one-third  million  inhabitants.     But 
the  future  is  of  even  greater  importance,  and  any  transit  plan  would 
be  hopelessly  short-sighted  that  did  not  furnish  an  adequate  con- 
ception of  the  financial  burdens  to  be  imposed  upon  a  city  embark- 
ing into  municipal  enterprises.     Manifestly,  any  policy  based  upon 
expediency  alone  must  of  necessity  be  subject  to  the  same  if  not 
greater  danger  of  ultimate  failure  than  has  been  the  result  of  short- 
sighted private  enterprise  in  the  past.    A  careful  analysis  of  growth 
shows  that  the  loss  in  population  due  to  the  fire  has  been  more  than 
made  up;  that  the  exodus  to  trans-bay  communities  has  practically 
ceased;  that  the  growth  of  San  Francisco  is  now  more  rapid  than 
ever,  and  that  a  city  of  one  million  inhabitants  will  have  to  be  pro- 
vided for  within  from  25  to  40  years  or  less,  with  every  reasonable 
expectation  of  corresponding  rapid  growth  of  the  entire  Metropol- 
itan District.    Compared  with  other  cities,  San  Francisco  shows  the 
maximum  patronage  of  transit  facilities,  and  according  to  the  general 
law,  its   railway  traffic  and  earnings  should  quadruple  when  the. 
population  doubles.    To  fulfill  this  great  increase,  it  is  known  that 
the  necessary  investment  in  surface  street  railways  alone  will  be  at 
least  3  :1 — i.  e.,  $3  expended  for  extensions  and  improvement  of  the 
property  for  each  additional  $1  earned.    But  the  purchasing  power  of 
the  City,  based  upon  its  property  valuation,  is  increasing  at  a  much 
slower  rate  than  the  earnings  and  investment,  which  means  that  if 
complete  municipal  ownership  is  not  now  possible,  it  will  become 
more  and  more  irmpossible  in  the  future  unless  valuation  increases 
at  a  faster  rate  or  revenue  producing  utilities  be  removed   from 
the  bond  limit.    If  San  Francisco  were  entirely  free  from  debt,  about 
one-third  of  its  total  bonding  capacity  would  have  to  be  reserved 
for  investment  in  surface  street  railways  alone  upon  the  present 
bond  basis.  The  City  now  faces  a  situation  in  which  the  track  mile- 
age extensions  are  at  least  six  years  behind  the  advance  in  settle- 
ment; the  car  service  capacity  is  inadequate,  and  probably  less  than 
before  the  fire;  and  to  fulfill  the  demands  of  the  present  and  fu- 
ture, probably  15  miles  of  track  per  year  will  be  needed  up  to  1920, 
with  a  corresponding  average  increase  in  equipment  of  40  to  50 
cars  per  year,  to  say  nothing  of  a  large  amount  of  rehabilitation  work 
necessary  on  the  present  Unes.    This  program  calls  for  large  expen- 


GENERAL  REVIEW 


XV 


ditures,  which  cannot  in  any  sense  be  fulfilled  by  building  a  few 
blocks  of  track  here  and  there  throughout  the  city.  The  major  de- 
fect lies  deeper,  and  requires  more  comprehensive  treatment. 

Development  of  Transit  System.  Two  plans  of  transit  ex- 
tensions have  been  worked  out  covering  the  entire  city:  (a)  com- 
plete municipal  system,  partially  competitive;  (b)  unified  system, 
non-competitive,  designed  for  maximum  development  of  the  terri- 
tory covered  with  minimum  investment.  These  extensions,  classified 
as  "immediate,"  "five  years,"  and  "ultimate,"  were  only  arrived  at 
after  a  study  of  topography  with  reference  to  actual  location  of  pop- 
ulation. Cross-town  lines  have  been  regarded  as  essential  parts  of 
a  radial  transit  system.  Any  comprehensive  municipal  system  neces- 
sitates joint  operation  over  sections  of  existing  tracks  under  the 
State  five-block  law,  in  lieu  of  which  such  a  system  would  be  practi- 
cally impossible  except  by  purchase.  Considering  the  minimum  needs 
of  the  immediate  future,  72  miles  of  single  track  are  involved,  cost- 
ing nearly  $6,000,000,  exclusive  of  tunnels.  After  about, five  years, 
50  miles  more  will  be  needed.  The  question  of  investment  is  there- 
fore the  immediate  crux  of  the  problem. 

Of  the  needs  of  the  various  districts,  those  of  the  Panama-Paci- 
fic Exposition  site  are  certainly  the  most  pressing.  The  present 
service  capacity  is  barely  one-third  of  that  necessary,  with  orily  one 
line — Polk  Street — in  any  sense  adequate  for  maximum  service, 
and  this  terminating  over  one  mile  from  the  main  court  of  the  Ex- 
position. However  estimates  may  vary  as  to  the  record  attendance,  a 
weekly  maximum  travel  of  50,000  people  per  hour  probably  repre- 
sents the  greatest  demand  for  which  street  railway  investment  seems 
warranted.  This  represents  more  passengers  than  travel  to  their 
homes  during  the  rush  hour  of  a  normal  business  day  in  San  Fran- 
cisco. Unless  tunnels  are  constructed,  parallel  lines  will  be  neces- 
sary, with  duplication  of  investment.  Under  limitations  of  street 
congestion  and  grades,  30  seconds  headway,  100  passengers  average 
per  car,  or  a  total  capacity  of  12,000  persons  per  hour,  represents  the 
ability  of  service  through  each  available  entrance  throat,  which  is  the 
controlling  factor.  This  exceeds  the  total  travel  on  Market  Street 
during  the  evening  rush  hour. 

Rapid  Transit  Development.  While  extensive  studies  of  rapid 
transit  by  means  of  subways  appear  to  be  hardly  warranted  under 
present  conditions  in  San  Francisco,  certain  lines  of  development  are 
clearly  logical— 1st,  the  Twin  Peaks  tunnel;  2d,  joint  development 
and  usage  by  the  City  and  Southern  Pacific  Company  of  the  latter's 
old  right-of-way  through  the  Mission  and  Bernal  Cut  as  a  new 
southern  outlet;  also  joint  use  of  Ocean  Shore  right-of-way;  3d, 
four-track  subway  the  full  length  of  Market  Street  connecting  with 


XVI  SAN   FRANCISCO  TRANSPORTATION   FACILITIES 

the  Twin  Peaks  tunnel ;  4th,  Mission  subway  branch  connecting  at 
Bernal  Cut  with  the  old  S.  P.  right-of-way ;  another  branch  prefer- 
ably out  McAllister  Street  into  the  Western  Addition  and  Rich- 
mond ;  upper  Sunset  to  be  served  from  the  Market  Street  subway 
by  the  Mission-Sunset  double-decked  tunnel.  Additional  branches 
later  may  reach  Harbor  View  through  the  Fillmore  Street  tunnel. 
Terminal  facilities  at  the  Ferry  form  a  grave  structural  problem. 
The  much  superior  convenience  of  subways  and  the  peculiar  neces- 
sity for  such  on  Market  Street  render  the  consideration  of  an  ele- 
vated line  south  of  Mission  Street  of  extremely  doubtful  utiHty, 
particularly  in  view  of  the  modern  tendency  toward  avoiding  the 
obstruction  and  noise  of  elevateds  in  downtown  streets.  Until  sub- 
ways are  required,  the  surface  transit  system  should  be  developed 
to  its  fullest  capacity. 

Transit  Policy  and  Procedure.    Part  I,  dealing  with  growth 
and  transit  development,   appropriately  concludes  with   a  plan  of 
procedure  by  which  an  effective  transit  policy  may  be  formu  ated 
and  the  results  of  such  a  plan  carried  to  maturity  as  contemplated 
therein.     The  demands  for  a  new  water  supply  and  the  refusal  of 
the  voters  to  justify  further  bonding  for  revenue  producing  utilities 
place  the  City  in  no  position  to  undertake  the  heavy  investment  in 
transit  facilities  now  necessary.    Thus,  after  having  established  the 
nucleus  of  a  municipal  system,  it  becomes  powerless  to  effect  the 
necessary  expansion.     At  the  same  time,  the  Company  is  distinctly 
embarrassed  in  the  raising  of  new  capital  for  extensions  by  the 
limitation   of  its   earning  power   to   a   very   short   franchise   term 
through  the   restrictions  imposed  under  the  present  Charter  and 
the  City's  declared  policy  of  municipal  ownership.     Approximately 
$8  000  000  authorized  new  capital  is  now  impounded  which  might  be 
released  for  extensions  under  more  reasonable  conditions  of  invest- 
ment.   Considering,  in  addition,  that  an  unfunded  debt  of  probably 
$27000000  will  remain  at  maturities  and  with  complete  liquida- 
tion out  of  earnings  practically  impossible,  there  are  no  reasonable 
alternatives  available  to  the  Company  except  a  radical  reduction  in 
capitalization,  a  resettlement  franchise  on  the  indeterminate  profit- 
sharing  basis,  or  both.    Refinancing  of  the  4%  U.  R.  R.  bonds  to  a 
5%  basis  would  be  of  great  assistance.    The  "Chicago  plan,    when 
perfected  as  outlined  in  Chapter  4,  seems  by  far  the  most  practical, 
providing  for  the  purchase  of  the  property  by  the   City  at  any 
time  upon  an  agreed  basis,  a  safe   return   on  underlying  bonds 
practically  guaranteed  to  the  Company  and  a  substantial  share  in 
the  residual  profits  to  the  City.     In  effect,  this  plan  when  so  per- 
fected rapidly  purges  the  investment  of  all  intangible  value  during 
the  first  franchise  period,  and  delivers  the  complete  property  with  all 


J 


GENERAL  REVIEW 


X\TI 


extensions  into  the  hands  of  the  City  at  the  end  of  the  second  period 
at  practically  half  price.  Or,  the  City's  share,  if  allowed  to  com- 
pound, will  automatically  recapture  the  entire  property  unaided 
within  perhaps  thirty  years.  Incidentally,  the  interests  of  Labor  are 
conserved  by  the  provision  of  a  benefit  reserve  fund  insuring  em- 
ployees against  disability  and  also  a  bonus  for  meritorious  service. 
Thus,  through  such  a  resettlement  plan  may  be  secured  to  San  Fran- 
cisco the  three  great  essentials:  (1)  extensions  as  required;  (2) 
continuous  adequate  service  and  equipment;  (3)  ultimate  municipal 
ownership.  But  to  accomplish  these  results,  Charter  revision  along 
the  lines  of  Amendment  34  is  imperative.  In  the  meantime,  such 
improvements  and  regulations  as  regards  equipment,  routing,  re- 
habilitation, and  accounting  as  fall  within  the  powers  of  the  Board 
of  Suj>ervisors  and  possibility  of  acceptance  by  the  Company  under 
the  present  Charter  require  immediate  execution.  And  pending  the 
establishment  of  a  Public  Service  Commission  clothed  with  the  City's 
executive  and  regulative  powers  over  utilities,  an  advisory  transit 
bureau  should  be  temporarily  established,  with  adequate  powers  for 
investigation  and  the  perpetuation  of  essential  records  such  as 
embodied  herein. 

PART  II— SERVICE  AND  REROUTING 

Rush  Hour  Traffic  and  Service.  In  the  determination  of 
service  requirements,  a  complete  cordon  count  was  made  intercepting 
all  passengers  outbound  from  the  downtown  district  by  way  of  the 
various  throats  of  travel  during  the  worst  rush  hour  conditions,  in 
order  to  obtain  an  actual  measure  of  traffic  so  that  service  recom- 
mendations could  be  based  strictly  upon  fact.  The  composite  re- 
sults for  July,  1912,  show  a  total  outbound  travel  of  49,000  passen- 
gers between  5  and  6  p.  m.  Of  the  total  city-bound  travel,  42% 
was  carried  on  Market  and  Mission  Streets,  and  11,700  passengers 
per  hour  on  Market  Street,  the  principal  thoroughfare,  with  an 
average  car  headway  of  27  seconds.  Due  to  the  delay  and  conges- 
tion at  the  Ferry  loop  and  along  Market  Street,  over  half  of  the 
15,000  trans-bay  commuters  walked  to  the  Ferry.  Comparing  traffic 
with  seating  capacity  affords  a  direct  measure  of  service,  and  while 
some  lines  showed  light  loading,  all  of  the  Market  and  Mission  lines 
showed  very  excessive  loading,  averaging  235  passengers  aboard 
for  every  100  seats  furnished  during  the  heaviest  15-minute  period. 
For  the  usual  "California"  type  prepay  car,  from  80  to  90  passen- 
gers can  be  accommodated  comfortably,  and  125  are  only  justifiable 
for  single  car  loading  in  extreme  emergencies.  Therefore,  the  65 
new  cars  now  on  order  will  not  suffice  even  for  the  present  needs,  if 
adequate  standards  of  loading  are  imposed,  as  is  only  reasonable 


XVIII        SAN   FRANCISCO  TRANSPORTATION   FACILITIES 

with  the  high  riding  habit  in  San  Francisco.  But  for  a  steady  in- 
crease in  schedule  speed  of  cars— over  12%  since  1905— conditions 
would  now  be  worse.  Although  averaging  about  8>^  miles  per  hour 
throughout  the  city,  congestion  in  the  business  district  reduces  the 
speed  to  as  low  as  2>4  to  3  miles  per  hour,  which  indicates  that  local 
relief  is  imperative. 

Relief  of  Lower  Market  Street.  The  absence  of  a  north  side 
thoroughfare  parallel  to  Market  Street  unavoidably  concentrates 
all  this  traffic  into  one  thoroughfare ;  and  with  the  capacity  of  Mar- 
ket Street  and  the  Ferry  terminal  already  reached,  the  only  alterna- 
tives are  minimizing  the  present  causes  of  congestion  and  encourag- 
ing the  greater  use  of  streets  south  of  Market  Street.  The  elimination 
of  unnecessary  routes  crossing  Market  Street  and  of  many  extra  far- 
side  stops,  with  more  uniform  spacing  of  stops,  will  materially  m- 
crease  the  operating  speed.  The  practice  of  loading  at  both  ends 
of  the  car  during  the  rush  hour  has  served  to  increase  track  capacity 
as  well  as  loading  speed.  And  with  still  better  loading  facilities,  a 
further  increase  of  about  2%  in  operating  speed  for  every  second 
saved  per  stop  can  be  made.  With  traffic  regulation  making  pos- 
sible multiple  car  crossings,  the  existing  safety  stations,  now  quite 
unsuited  to  present  needs,  may  be  lengthened  to  provide  for  two- 
car  or  tandem  berths.  By  so  doing,  delays  due  to  crossing  interfer- 
ence will  be  reduced  nearly  one-half,  and  operating  speed  thus  in- 
creased. Radical  improvements  at  the  Ferry  terminal  are  impera- 
tive to  obtain  necessary  reservoir  or  car  storage  capacity  and 
remove  the  throat  congestion  by  the  recession  of  the  Sacramento 
Street  corner.  The  use  of  four  tracks  in  lower  Market  Street  rep- 
resents a  most  serious  operating  problem,  requiring  rigid  inspection 
and  traffic  regulation.  While  the  track  capacity  would  probably 
accommodate  200  cars  per  hour,  the  present  loop  terminals  are 
already  practically  up  to  their  capacity;  so  that  the  majority  of  both 
Sutter  and  Geary  Street  cars  must  be  turned  back  at  Market  Street 
until  improved  terminal  facilities  are  provided. 

Rerouting  and  Service  Redistribution.  As  a  result  of  traf- 
fic counts,  by  which  the  riding  characteristics  on  each  individual  line 
in  the  city  have  been  ascertained,  certain  improvements  in  routing 
have  been  developed  both  for  the  downtown  or  terminal  loading 
district  and  for  the  outlying  districts.  From  these  counts  it  is  ap- 
parent that  service  should  be  tapered  off  according  to  the  demand 
(as  in  a  system  of  water  mains)  by  short-running  or  looping  extra 
rush  hour  cars  so  as  to  distribute  car  mileage  where  most  needed. 
Some  of  the  present  short-haul  lines  could  be  advantageously  ex- 
tended, circuitous  routes  for  long-haul  lines  could  be  avoided,  and 


GENERAL  REVIEW 


XIX 


additional  cross-town  lines  installed  to  relieve  radial  routes  of  this 
class  of  service.  Local  traffic  is  found  to  seriously  inconvenience 
long-haul  traffic,  through  delays  due  to  extra  stops  and  additional 
crowding.  Therefore  limited  stop  expresses,  running  on  the  least 
congested  streets  are  desirable  for  outlying  centers,  and  should 
encounter  no  objection  when  ample  local  service  is  provided  by 
short-run  routes.  Because  of  the  certain  increase  in  traffic  on 
Market  Street,  a  diversion  to  Mission  Street  is  inevitable ;  and  while 
established  routes  are  difficult  to  change,  there  can  be  no  valid 
objection  to  diverting  new  routes  or  additional  service,  leaving  the 
present  Market  Street  service  intact. f 

At  the  date  of  the  counts  (July,  1912)  about  65  additional  trips 
were  needed  during  the  rush  hour  only.  With  the  present  equip- 
ment and  routing,  this  number  has  increased  to  probably  84,  requir- 
ing nearly  the  same  number  of  cars,  which  may  only  be  reduced  by 
increased  speed  or  by  short-running.  If  the  improved  routing  is 
carried  out  as  recommended,  the  additional  car  mileage  necessary 
may  be  reduced  from  14.4  to  7.5%  of  the  total  for  the  rush  hour. 
Midday  service  is  largely  a  question  of  reasonable  headway,  and 
loading  in  excess  of  seating  capacity  becomes  as  unnecessary  then 
as  it  is  unavoidable  during  the  rush  hour.  In  a  short-haul  city, 
where  walking  is  possible,  a  headway  of  not  longer  than  5  to  10 
minutes  (depending  upon  the  locality)  is  necessary  to  develop  traffic. 
It  is  equally  important  that  cars  from  the  various  tributary  branches 
be  distributed  along  the  trunk  line  with  maximum  regularity  to 
avoid  "bunching."  The  transfer  system  is  liberal,  and  in  fact  too 
liberal  for  efficient  operation,  especially  to  prevent  "loop  riding." 
For  the  municipal  system  a  complete  plan  of  routes  and  extensions 
is  presented,  both  with  and  without  tunnels,  and  probably  300  cars 
would  be  necessary.  For  such  a  comprehensive  system,  many  routes 
would  be  necessarily  competitive,  and  even  if  transfer  privileges 
could  be  obtained  to  and  from  United  Railroads  lines,  the  fare  would 
have  to  be  divided. 

Location  of  Geary  Street  Terminus.  In  determining  a 
proper  location  for  the  extension  of  the  Geary  Street  Municipal  line, 
a  study  of  the  topography  indicated  only  two  means  of  descent: 
First,  by  a  long  and  dangerous  .8%  grade  around  Sutro  Heights; 
and  Second,  by  diversion  south  through  Richmond.  In  view  of  the 
possibility  of  obtaining  joint  operating  rights  as  far  as  Sutro 
Heights,  the  latter  diversion  was  recommended  in  order  to  secure  a 
better  grade  and  the  much  needed  development  of  valuable  residence 
territory.     This  location  also  facilitates  connection  across  the  Park 

HislorTa*   rIv/cwI  ''°"***    '*'"    *PP''°''''"^^^    ^^'^    """"^^^    ^^    ^^'^    ^'^    omnibus    days— (See 


f^ 


i 


XX 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


and  Sunset,  and  along  the  Great  Highway,  and  paves  the  way  for  a 
future  east-west  trunk  line  direct  from  the  business  district  via  Turk 
and  Balboa  Streets. 

PART  III— IMPROVEMENTS  IN  ROLLING  STOCK 

Municipal  Railway  Cars.  In  preparing  specifications  for 
the  new  municipal  railway  equipment,  it  was  deemed  essential  to 
combine  the  features  of  comfortable  riding,  reasonable  capacity, 
quick  loading,  increased  power  and  safety,  all  in  a  "California"  type 
prepayment  car.  While  the  closed  "box  car"  with  continuous  longi- 
tudinal seats  provides  maximum  capacity  for  "strap-hangers,"  cross 
seats  undoubtedly  encourage  traffic,  and  an  effective  combination  of 
both  has  therefore  been  employed.  In  particular,  the  platform  ar- 
rangement is  such  as  to  encourage  rapid  passenger  movement,  with 
the  result  that  the  average  seconds  per  passenger  is  one-third  less 
than  for  United  Railroads  platforms  of  equal  length,  and  one-half 
less  than  on  shorter  platforms.  Lift  steps  were  provided,  as  essen- 
tial for  safe  operation.  By  the  use  of  remote  control  with  all 
bulky  electrical  parts  underneath,  the  car  can  be  readily  adapted  for 
future  operation  in  two-car  units,  tandem  fashion.  In  the  interest 
of  conserving  width  of  roadways  already  too  narrow  in  San  Fran- 
cisco, a  reduction  in  over-all  car  width  from  the  present  9'  2"  to 
the  Chicago  standard  of  8'  6"  has  been  effected  through  the  more 
efficient  use  of  materials,  with  a  reduction  of  only  one  inch  in  net 
width  of  aisle.  This  standard  permits  track  centers  of  10'  2",  with 
a  "devil  strip"  of  20  inches  between  cars,  thus  gaining  18  inches  for 
the  roadway.  By  reducing  the  sidewalks  from  15  ft.  to  11  or  12  ft. 
width,  the  standard  already  adopted,  it  is  possible  to  preserve  the 
extremely  necessary  free  way  hettveen  cars  and  vehicles  standing 
along  the  curb.  While  this  change  in  existing  track  centers  can  only 
be  made  gradually  during  rehabilitation,  it  may  be  made  on  all  ex- 
tension work  where  the  new  car  standards  are  applicable. 

1912  United  Railroads  Car.  In  its  new  equipment  the 
United  Railroads  has  also  adopted  the  "California"  type  prepay- 
ment car.  However,  the  original  design  contemplated  is  at  variance 
with  the  advanced  principles  embodied  in  the  municipal  car  design, 
principally  in  the  seating  arrangement  and  width  of  car.  While 
about  half  cross  seats  were  provided  for,  the  recommended  seating 
plan  was  reversed  by  using  them  in  the  open  instead  of  the  closed 
section,  upon  the  assumption  that  maximum  capacity  in  the  closed 
section  was  necessary  during  stormy  weather.  But  with  the  simple 
provision  of  storm  curtains  the  municipal  car  plan  becomes  prefer- 
able, providing  maximum  standing  or  storage  space  in  the  open  ends, 


'T 


'4 


GENERAL   REVIEW 


XXI 


where  it  is  most  useful  for  short-haul  traffic.  Tapered  platforms 
were  advised  to  provide  for  clearance  of  cars  around  curves  when  a 
suitable  fender  should  have  been  perfected  to  make  possible  this 
very  necessary  factor  in  rapid  operation.  Other  modifications  of  the 
original  design  were  found  desirable  for  a  standard  car,  especially  if 
designed  for  operation  through  the  business  district. 

Improvements  in  Existing  Rolling  St€>ck.  Expensive  modi- 
fications in  old  rolling  stock  are  hardly  justifiable  unless  the  saving 
for  the  remaining  life  reasonably  exceeds  the  additional  cost  of  new 
car  bodies.  Here,  the  principal  objections  have  arisen  from  the  ap- 
plication of  the  prepayment  principle  to  platforms  entirely  unsuited 
for  this  method  of  fare  collection,  especially  where  a  fare  box  is 
used.  A  large  increase  in  platform  capacity  and  loading  speed  is 
most  necessary ;  in  fact  the  largest  of  the  San  Francisco  cars  require 
more  time  per  passenger  to  load  even  at  both  ends  of  the  car  than 
the  standard  Chicago  car  when  loading  at  one  end  only — about  one 
second  per  passenger.  While  lengthening  the  plaforms  would  be 
desirable  in  certain  types,  an  increase  of  possibly  25%  in  loading 
speed  may  be  obtained  by  rearrangement  of  the  platform  fixtures 
and  the  removal  of  the  bulkhead  to  the  interior  of  the  car,  thus 
forming  a  "California"  type  body.  An  improvement  in  seating 
plan  similar  to  that  of  the  municipal  car  could  be  advantageously 
made.  Power  brakes  are  necessary  on  all  double-truck  equipment, 
and  replacing  projecting  steps  by  the  folding  type  will  minimize 
accidents.  Certain  non-prepay  types  such  as  the  1300  center  entrance 
type  may  well  be  rebuilt  for  prepayment  operation ;  for  traffic  counts 
show  that  the  loss  in  these  non-prepay  types  is  excessive,  over  90 
passengers  being  missed  on  some  lines  of  heavy  travel,  during  one 
single  outbound  trip.  Of  the  cable  lines,  Powell  Street  requires 
most  urgent  improvement,  with  double-ended  cars  as  used  on  Cali- 
fornia or  Clay  Street.  Obviously,  the  turn-table  at  Market  Street 
exists  as  an  unwarranted  traffic  obstruction  in  a  street  already  too 
narrow.  The  extremely  severe  grades  of  the  Union  Street  line 
suggests  the  need  of  a  special  type  of  car  for  hill  service  lines  in 
San  Francisco,  of  light  construction,  moderate  size,  and  ample 
motor  capacity. 

PART  IV— SUPPLEMENTAL  IMPROVEMENTS  IN 

CITY  PLAN 

Harbor  View  Tunnels.  A  comparison  of  available  ap- 
proach grades  and  the  advantages  to  be  gained  by  regrading  streets 
affected,  developed  the  fact  that  comparatively  few  routes  are 
practicable.  As  Harbor  View  exists  without  a  single  low-level  en- 
trance   from   any   direction,   at   least   one   tunnel    is   essential    for 


I 


XXII 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


both  railway  and  vehicle  traffic,  for  which  the  approach  grades 
should  not  exceed  4  per  cent.  Fillmore  Street  possesses  the  maxi- 
mum advantages  in  this  respect,  although  street  widening  at  the 
portals  will  be  necessary,  and  probably  arcading  of  the  building 
fronts  in  order  to  enlarge  the  present  narrow  roadway.  In  view  of 
this  grade  limitation,  the  short  tunnel  underneath  Fort  Mason 
forms  an  indispensable  link  in  the  Belt  line  system  for  both  freight 
and  passenger  travel,  thus  virtually  extending  The  Embarcadero 
into  Harbor  View;  and  unless  a  low-level  roadway  is  provided 
around  Black  Point,  this  tunnel  should  accommodate  vehicle  traffic 
also.  Supplemental  to  the  Stockton  Street  tunnel  already  under  way, 
a  tunnel  under  Broadway  becomes  particularly  advantageous  for 
car  and  light  vehicle  traffic,  thus  reaching  both  the  business  center 
and  The  Embarcadero.  Being  comparatively  short,  a  single-bore 
arch  with  combined  roadway  is  possible,  whereas  a  double  bore 
is  essential  for  the  Fillmore  Street  alignment.  These  tunnels  are 
all  needed  for  the  proper  development  of  the  city  as  well  as  for 
the  Exposition. 

Rapid  Transit  Tunnel  Under  Twin  Peaks.  San  Francisco 
is  today  bottled  up  as  is  no  other  large  city,  with  only  one  direct 
outlet  throat — through  the  Mission — other  than  those  provided  at 
great  expense  by  private  capital.  And  at  least  one-third  of  the  city 
is  practically  unsettled  as  a  result  of  the  excessive  time  required  for 
reaching  the  outlying  districts.  The  Twin  Peaks  tunnel  accom- 
plishes not  only  the  development  of  this  unsettled  acreage,  but 
also  a  rapid  transit  route  down  the  Peninsula.  With  this  in  mind, 
a  miximum  of  3%  for  long  grades  was  established,  which  together 
with  the  necessity  of  reaching  San  Miguel  Valley  near  Laguna 
Honda  finally  determined,  out  of  six  tunnel  projects  and  twenty 
different  combinations,  the  exact  alignment  recommended.  As  ve- 
hicle traffic  is  out  of  the  question  through  so  long  a  tunnel,  this 
project  resolved  itself  into  a  double-track  bore  suited  for  suburban 
trolley  equipment  and  also  high-speed  multiple-unit  trains  for  in- 
terurban  service  of  the  maximum  size  contemplated  for  future  sub- 
way connection  into  Market  Street.  Although  an  ideal  interurban 
terminal  might  be  established  near  Valencia  and  Mission  Streets,  into 
which  interurban  trains  could  run  directly  from  the  Market  Street 
bore,  it  is  most  essential,  if  the  Market  Street  section  is  abandoned 
for  the  present,  that  the  main  hill  section  conform  to  the  recom- 
mended contour  extension  of  Market  Street  and  emerge  from  sub- 
grade  at  Eureka  or  Castro  Streets,  so  that  a  future  direct  connection 
with  this  Market  Street  subway  could  be  made.  The  straight  exten- 
sion of  Market  Street  is  impracticable,  but  the  contour  extension  pro- 
vides not  only  the  necessary  tunnel  alignment,  but  also  an  independ- 


GENERAL  REVIEW 


XXII! 


- 


ent  vehicle  route  around  Twin  Peaks.  Eventually,  a  cross-town 
transfer  connection  at  Laguna  Honda  station  will  be  desirable,  and  a 
"reservoir  station"  in  Eureka  Valley  designed  for  connection  with  a 
supplemental  Mission-Sunset  tunnel  under  Buena  Vista  Heights 
By  building  this  latter  double-decked,  surface  vehicle  traffic  can  be 
accommodated  on  the  surface  and  cars  beneath,  connecting  either  at 
subgrade  with  the  Market  Street  subway,  or  by  inclines  to  the  sur- 
face tracks.  By  these  projects  the  entire  ocean  beach  will  be  brought 
within  30  minutes  local  time  from  the  business  center,  and  San 
Mateo  possibly  within  30  minutes  from  the  city  by  high-speed  inter- 
urban trains. 

Improvements  in  City  Plan.  Supplemental  to  the  execu- 
tion of  the  plans  proposed  herein  for  extensions  and  rerouting,  a 
number  of  minor  improvements  in  city  plan  will  become  distinctly 
useful,  and  some  almost  essential.  Only  such  minor  projects  as 
street  extensions  and  regrades,  cuts  and  fills,  widening  of  roadways, 
etc.,  are  here  dealt  with,  rather  than  the  major  products  such  as 
recommended  in  the  Burnham  plan.  It  is  essential  that  with  exist- 
ing streets  a  wider  roadway  be  provided  for  permitting  at  least  one 
line  of  moving  vehicles  between  cars  and  other  vehicles  stmiding 
along  the  curb.  In  this  regard  automobile  stands  at  Union  Square 
are  obviously  necessary.  The  extension  of  Van  Ness  Avenue  to 
Mission  Street,  and  the  connection  and  improvement  of  streets  in 
the  "Hub"  district  of  the  Mission  are  favored ;  also  a  very  short  tun- 
nel connection  to  permit  a  low-grade  line  into  Noe  Valley.  A  Kearny 
Street  tunnel  under  Telegraph  Hill  is  considered  a  practicable  loca- 
tion if  the  money  can  be  raised.  A  most  important  subject  is  the 
Bernal  Cut,  by  the  improvement  of  which,  a  new  rapid  transit  route 
to  the  County  line  is  rendered  available  through  the  co-operation  of 
the  City  and  the  Southern  Pacific  railroad  in  the  joint  improvement 
of  the  latter 's  old  right-of-way.  The  contour  plan  of  street  exten- 
sion is  urgently  recommended  not  only  for  Market  Street  west,  but 
also  for  all  new  streets  in  territory  unsubdivided  where  heavy  grades 
are  encountered. 

Terminal  Improvements  on  the  Harbor  Front.  A  study  of 
the  congestion  on  lower  Market  Street  indicates  the  great  need  of 
increased  terminal  facilities  at  the  Ferry,  not  only  for  present  but  for 
future  travel.  Although  the  special  nature  of  ferry  service  requires 
reservoir  capacity  to  serve  ferry-boat  traffic  to  any  reasonable  de- 
gree, none  is  now  available.  The  loops,  while  able  to  accommodate 
present  Market  Street  traffic,  have  practically  no  reserve  for  addi- 
tional traffic  from  the  Geary  and  Sutter  Street  lines  to  be  delivered 
from  the  outer  tracks.  This  necessitates  the  diversion  of  car  traffic 
to  the  few  stub  terminals  available  north  and  south  of  Market  Street. 


") 


XXIV         SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

Not  only  are  additional  loops  necessary  now  for  north  and  south  side 
cars   but  also  an  additional  loop  or  stubs  for  Market  Street  traffic. 
But  the  latter  can  only  be  temporary,  and  the  final  solution  appears  to 
be  found  in  an  elongated  loop  reaching  the  upper  Hoor  of  the  Ferry 
terminal,  leaving  the  ground  floor  for  vehicles  and  north-south  side 
traffic.  Eventual  enlargement  of  the  ferry  buildings,  extending  the 
loading  frontage  in  both  directions,  will  make  this  imperative.    Such 
a  comprehensive  plan  absolutely  requires  the  recession  of  the  irregu- 
lar building  line  of  The  Embarcadero,  so  that  the  inclines  may  be 
made  off  of  Market  Street.     And  by  co-operation  of  City  and  State 
an  equalization  of  areas  east  and  west  of  the  proposed  frontage  line 
may  be  effected  without  loss  of  property.    In  any  event,  the  reces- 
sion of  the  protruding  Sacramento  Street  corner  is  urgent.    An  al- 
ternative plan  somewhat  less  ambitious  might  suffice  for  some  years 
bv  elevating  two  tracks  in  Market  Street  east  of  Spear  Street,  re- 
taining the  present  surface  loops  for  traffic  on  the  outer  tracks  only 
thus  avoiding  the  widening  of  Market  Street.    For  Ferry  terminal 
service    lay-over  cars  are  essential,  with  fixed  car  berths,  electric 
indicating  and  dispatching  signal  system,  segregation  of  inbound 
and  outbound  passenger  flow,  ticket  booth  collection,  and  loadmg  at 
both  ends  of  the  car  as  equally  necessary  requirements.     Much  of 
the  present  congestion  is  due  to  indecision  of  passengers  regardmg 
stops  and  routes,  and  police  traffic  regulation  would  be  of  immediate 
assistance. 

PART  V-ANALYSIS  OF  RAILWAY  OPERATION  AND 

RECORDS 

Financial  and  Operating  Records,  United  Railroads.  A^^ri 

from  questions  of  intercorporate  financing  and  integrity  of  sink- 
ing funds  and  surplus  (which  latter  clearly  fall  within  the  scope 
of  State  rather  than  City  supervision)  an  exhaustive  analysis  of 
records  for  the  past  decade  formed  an  important  phase  of  this  inves- 
tigation. 

The  property  is  found  to  be  inherently  stable  from  an  operating 
standpoint,  to  have  exceptionally  high  earning  capacity  even  under 
the  high  cost  of  operation  in  San  Francisco,  to  be  efficiently  main- 
tained as  regards  equipment,  but  low  in  maintenance  of  way  and 
structures,  and  to  enjoy  a  high  average  fare  with  only  moderate 
dilution  from  transfers.  Wages  are  higher  than  in  other  large  cities, 
but  the  tax  burden  is  comparatively  light,  and  the  City's  share  incon- 
siderable. Since  the  consolidation,  the  drain  upon  net  earnings  due 
to  increased  fixed  charges  has  made  dividends  upon  preferred  or 
comnwn  stock  practically  impossible,  at  the  same  time  assigning 


GENERAL  REVIEW 


XXV 


proper  cash  reserves  to  depreciation,  renewals  and  sinking  fund 
for  the  amortization  of  outstanding  liabilities  and  to  all  appear- 
ances, approximately  $27,000,000  unfunded  debt  will  remain  un- 
satisfied at  maturities.  To  the  former  liberal  dividend  policy  and  lack 
of  reserves  may  be  ascribed  much  of  the  financial  embarrassment 
following  the  fire ,  although  the  fire  was  found  to  have  occasioned 
only  about  one-fourth  the  loss  in  earnings  caused  by  the  strike,  and 
comparatively  little  uninsured  loss  in  property.  With  reasonable  re- 
serves, the  property  is  now  able  to  earn  around  7%  on  the  present 
bonded  debt  of  $40,000,000.  Owing  to  Charter  restrictions,  limita- 
tion of  franchise  term,  and  market  price  of  present  securities,  about 
$8,000,000  authorized  securities  are  now  unavailable  for  exten- 
sions and  betterments,  so  that  a  radical  change  in  plan  is  necessary 
to  enable  the  Company  to  raise  new  capital  at  reasonable  rates  for 
extensions. 

Owing  to  the  high  density  and  rapid  increase  in  traffic,  unusually 
high  earnings  per  unit  of  operating  equipment  are  shown.  And 
although  the  comparatively  small  seasonal  variation  in  traffic  makes 
possible  minimum  investment  and  high  relative  usage  of  equip- 
ment for  the  same  service  as  compared  with  eastern  cities,  a  short- 
age of  equipment  is  indicated  by  these  records  which  is  reflected 
in  the  excessive  loading  found  by  actual  traffic  counts.  From  the 
analysis  of  income,  it  appears  unquestionable  that  a  considerable 
increase  in  service  as  prescribed  herein  may  be  readily  met  without 
unreasonable  diminution  of  net  income. 

Condition  of  Property.  By  means  of  a  personal  inspec- 
tion, the  condition  and  adequacy  of  track,  equipment  and  structures 
were  determined.  According  to  a  reasonable  standard,  it  appears 
that  about  70  miles  of  single  track  and  23  miles  of  paving  (along 
good  track)  represents  the  magnitude  of  rehabilitation  work  that 
must  be  undertaken  in  the  near  future,  of  which  over  half  is  urgent. 
Of  the  equipment,  40%  is  either  inadequate  for  downtown  ser- 
vice or  requires  rebuilding  into  modern  prepayment  cars.  The 
platform  capacity  of  most  of  the  prepayment  equipment  is  inade- 
quate for  the  traffic  encountered.  A  good  record  of  improved 
maintenance  of  equipment  appears  during  the  last  three  or  four 
years,  but  track  maintenance  has  been  seriously  neglected.  While 
car  shop  facilities  are  excellent,  the  fire  risk  in  practically  all  car 
houses  is  serious.  As  a  result  of  the  transfer  of  power  genera- 
tion to  an  affiliated  company  (the  Sierra  &  San  Francisco  Power 
Company)  the  conditions  of  power  supply  have  greatly  improved 
within  the  last  three  years,  and  this  with  a  moderate  power  rate. 
The  equipment  of  the  Presidio  &  Ferries  line  is  totally  inadequate 


XXVI        SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

as  regards  motor  capacity,  but  the  track  having  been  recently  re- 
built is  in  good  condition,  which  can  also  be  said  of  the  California 
Street  Cable  Railway. 

PART  VI— FRANCHISES  AND  LEGAL  MATTERS 

Charter  Amendment  No.  34.  Recognizing  the  inhibition 
against  private  capital  under  present  Charter  provisions  and  the  in- 
ability of  the  City  to  either  purchase  its  street  railways  or  provide 
funds  for  a  comprehensive  municipal  system,  the  formulation  of  a 
broad  enabling  act  was  made  necessary  under  which  the  City  could 
grant  new  and  resettlement  franchises,  subject  always  to  the  will 
of  the  people.  With  certain  safeguards  against  former  defects, 
new  capital  could  then  be  raised  under  proper  conditions  to  meet 
the  growth  of  the  city.  The  indeterminate  form  of  franchise  was 
adopted,  subject  to  the  maximum  term  under  State  law — 25  years — 
but  with  conditions  properly  protecting  the  integrity  of  the  under- 
lying investment  up  to  the  time  of  recapture  by  the  City  through 
purchase  or  automatic  amortization  of  debt.  While  incorporating  all 
of  the  desirable  features  of  the  Chicago  profit-sharing  franchise, 
this  plan  distinctly  improved  thereon  by  enforcing  decapitalization — 
1st,  of  all  intangible  values ;  and  2nd,  of  half  of  the  tangible  property. 
The  present  Charter  wage  scale,  impossible  under  American  rail- 
way conditions  of  flat  5-cent  fare,  was  necessarily  modified,  but 
a  substantial  profit-share  was  practically  guaranteed  to  the  City,  by 
which  the  City  could  automatically  recapture  the  property.  And 
the  impossible  condition  that  private  capital  should  retire  its  entire 
investment  within  the  short  period  of  25  years  was  rectified  by  the 
recognition  of  a  continuing  investment,  thus  protecting  new  capital. 
By  thus  strengthening  the  basic  financial  conditions,  private  invest- 
ment would  be  encouraged,  municipal  ownership  would  become  a 
practical  possibility  instead  of  a  theory,  and  continuous  develop- 
ment and  adequate  service  would  be  insured  without  loss  of  essen- 
tial rights  now  held  by  the  electors. 

General      Franchise      Ordinance.  The   fundamental 

principles  contemplated  in  this  modification  of  the  City's  franchise 
policy  consist  largely  in  codifying  its  regulative  powers  in  the 
form  of  a  general  franchise  ordinance,  detailed  in  sufficient  partic- 
ulars to  govern  future  grants,  and  thus  give  definite  expression  to 
municipal  regulation  and  supervision  of  utilities.  Adequate  con- 
tinuous up-keep  of  property  is  safe-guarded  by  the  reservation  of  a 
proper  proportion  of  gross  income  for  maintenance  and  deprecia- 
tion; construction  of  extensions  is  insured  by  the  guaranteeing  of 
underlying  investment ;  unreasonable  demands  for  expansion  or  ser- 


GENERAL  REVIEW 


XXVII 


vice  are  curbed  by  the  resulting  dilution  of  net  earnings  and  diminu- 
tion of  the  profit-share ;  sinking  funds  are  established  for  the  amorti- 
zation of  capital  investment;  unscrupulous  financial  raids  on  the 
property  are  prevented  by  a  bonus  in  addition  to  the  purchase  price ; 
practical  regulation  and  supervision  is  exercised  through  a  com- 
petent and  non-political  commission  clothed  with  administrative 
powers  now  held  by  the  Board  of  Supervisors;  private  capital  is 
accorded  a  reasonable  return  and  an  opportunity  to  reclaim  its 
investment  without  ultimate  loss ;  and  unified  operation  of  the  entire 
traction  system  is  made  possible,  irrespective  of  ownership,  with  a 
single  fare  and  universal  transfers. 

Present  Franchise  Status.  An  eflFort  to  establish  the 
validity  and  ultimate  earning  power  of  existing  franchises  developed 
the  fact  that  grave  uncertainties  exist,  determinable  only  by  legal 
process  of  court  decision.  As  a  result  of  successive  consolidations, 
the  original  intent  and  conditions  of  many  franchises,  some  of  which 
are  very  important,  have  been  departed  from  without  official  consent 
of  the  City,  whether  through  lax  supervision  or  otherwise,  thus  intro- 
ducing questionable  legal  status.  In  the  case  of  Market  Street  Rail- 
ways, uncertain  definition  of  term  in  the  amending  order  results 
in  a  difference  of  $15,000,000  in  earning  power.  Owing  to  differing 
franchise  periods,  the  present  traction  system,  two-thirds  of  which 
expires  in  1929,  will  be  left  in  a  fragmentary  condition,  entirely  un- 
suited  to  effective  operation.  A  number  of  important  lines  are 
operating  either  without  franchise  or  under  very  questionable 
grants.  As  a  result  of  the  radical  migration  of  population  since  the 
fire,  some  franchises  heretofore  most  valuable  have  been  seriously 
reduced  in  importance,  so  as  to  necessitate  ineffective  routing  for 
holding  these  franchises.  The  conditions  of  the  present  Charter 
render  new  franchises  for  extensions  practically  prohibitive.  All 
these  conditions  conspire  to  make  it  extremely  desirable  to  establish 
the  status  of  these  franchises,  to  equalize  their  terms,  and  to  clear 
the  city's  streets  of  all  unused  and  ineffective  franchises. 

Computation  of  Taxable  Receipts.  In  carrying  out 
the  tax  provisions  of  existing  franchises,  the  "duplicate  or  multiple 
service"  resulting  from  the  routing  of  more  than  one  line  over  the 
same  track  has  introduced  serious  complications  and  expense  of 
audit  in  determining  this  tax  on  gross  receipts.  While  the  City 
claims  full  percentage  upon  all  receipts  from  duplicate  service  routes 
the  Company  considers  one  line  as  fulfilling  the  conditions  of  this  fran- 
chise tax,  and  year  by  year  the  matter  has  been  compromised  arbi- 
trarily. But  an  analysis  of  this  question,  based  upon  the  conception 
of  a  usage  tax,  leads  to  the  conclusion  that  the  proportional  tax 
upon     multiple  service"  should  be  based  upon  such  proportional 


XXVIII      SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


usage.  While  passenger  mileage  would  theoretically  prove  a  more 
accurate  basis,  it  is  recommended  that  the  distribution  should  be 
made  upon  a  car  mileage  basis  as  the  most  tangible  evidence  of 
service  or  usage,  i.  e.,  that  the  taxable  receipts  of  a  given  section  of 
track  bear  the  same  relation  to  the  total  receipts  of  all  routes  operat- 
ing thereon  as  the  actual  car  mileage  over  that  section  bears  to 
the  total  car  mileage.  But  it  is  also  recommended  that  this  trouble- 
some matter  be  simplified  by  an  equalisation  of  this  percentage  tax 
over  the  entire  system.  This  usage  tax  now  averages  little  more  than 
one-half  per  cent  of  the  passenger  earnings,  owing  to  the  large 
amount  of  exempt  mileage,  and  even  this  has  decreased  since  the 
last  determination. 

End  of  General  Review. 


PART  I 
GENERAL  PROGRAM 


Chapter  I. 
Chapter  2. 

Chapter  3. 
Chapter  4. 


Present  Transportation  Conditions. 

Growth   of   Earnings   and   Investment 
IN  Transit  Facilities. 

Development  of  Transit  System. 
Plan  of  Procedure  for  the  City. 


;, 


CHAPTER  1 

PRESENT  TRANSPORTATION 
CONDITIONS* 

In  this  introductoryf  chapter  to  the  report  proper,  no  attempt  is  made  to 
present  or  discuss  detailed  facts  and  figures  to  a  finality,  but  simpl\f  to  de- 
fine in  general  terms  the  scope  of  the  transportation  problem  non>  confronting 
the  City,  each  phase  of  lifhich  is  analyzed  in  detail  in  succeeding  chapters. 
In  spite  of  some  unavoidable  repetition  it  is  necessary  that  the  subject  should 
be  thus  broadly  surveyed  at  the  outset  in  order  to  forestall  the  formation  of 
incorrect  opinions  which  might  give  undue  Tveight  to  certain  less  important 
phases  of  the  subject. 

Growth  of  the  District.  Within  the  short  space  of  sixty  years 
San  Francisco  has  not  only  developed  its  utilities  as  have  other 
American  cities  within  the  same  period,  but  most  important,  it  has 
developed  its  City,  extended  its  water  front,  reclaimed  its  sand 
dunes,  settled  its  hillsides,  and  is  now  face  to  face  with  the  serious 
problem  of  forcing  its  utilities  to  keep  pace  with  this  rapid  municipal 
development.  And  with  the  utmost  certainty  of  tremendous  ex- 
pansion under  the  impetus  of  the  Panama  Canal,  the  City  is  just 
beginning  to  realize  the  difficulty  of  coping  with  this  expansion  in 
the  face  of  competition  of  neighboring  and  other  coast  cities,  which 
have  been  extremely  active  within  the  past  few  years  in  perfecting 
their  facilities  for  handling  the  expected  commerce. 

During  the  past  decade  a  much  higher  annual  rate  of  growth 
has  taken  place  in  the  City  than  in  any  other  period  of  its  pre- 
vious history.  Commerce  has  increased  proportionately,  and  the 
banking  year  of  1906  actually  showed  an  increase  in  clearings,  even 
with  the  enormous  drop  following  the  catastrophe  of  that  year. 

The  utilities  have  advanced  rapidly  in  earning  capacity,  more 
especially  railways.  But  for  the  past  decade,  unfortunately,  there 
has  been  practically  no  expansion.  On  the  contrary,  a  tendency  to 
concentrate  and  to  increase  earnings  has  manifested  itself.  At 
least  one-third  of  the  City  is  practically  unpopulated  through  lack 
of  necessary  utility  service — railway  and  water,  while  it  is  a  fact 
that  the  southerly  districts  of  this  City  embrace  residential  devel- 
opment sites,  exceeding  in  natural  advantages  anything  in  the 
District,  especially  in  convenience  of  transit  when  proper  facilities 

•Formerly  Preliminary  Report  No.  9,  submitted  Sept.   18,  1912. 


4  SAN  FRANCISCO  TRANSPORTATION  FACIUTIES 

are  provided.    That  these  sites  remain  undeveloped  furnishes  the 
n-.ost  direct  proof  of  the  lack  of  proper  service. 

As  small  as  it  is,  the  City  has  not  only  not  utilized  its  own  terri- 
tory but  contemplates  expansion  down  the  Peninsula  and  across 
the  Bay.  Unquestionably,  the  City  should  not  only  develop  its 
own  territory  as  rapidly  as  possible,  but  also  attempt  to  evolve^in 
conjunction  with  adjacent  cities,  some  form  of  Metropolitan  Dis- 
trict Control  by  means  of  which  the  normal  and  adequate  develop- 
ment of  utilities  and  other  enterprises  vital  to  its  life,  may  be 
effected  If  the  prevailing  rate  of  growth  continues,  San  Fran- 
cisco in  1930  will  probably  be  the  center  of  a  District  community  of 
1  366,000  persons,  with  722,000  persons  within  the  City  proper, 
from  which  nearly  $20,000,000  per  year  will  be  paid  into  the  coffers 
of  the  railway  company  alone. 

With  the  recently  added  financial  burdens  of  water  system 
acquisitions,  it  is  hardly  to  be  expected  that  the  City  is  in  a  posi- 
tion to  immediately  acquire  the  entire  railway  system,  especially 
in  view  of  the  fact  that  franchise  equities  exist,  which  will  enhance 
the  purchase  price  until  such  franchises  have  expired. 

A  practicable  means  must  therefore  be  found  to  insure  certain 
immediate  extensions  and  an  adequate  program  for  the  future,  if 
San  Francisco  intends  to  keep  pace  with  the  high  rate  of  growth 
which  is  characteristic  of  the  Coast  cities.  It  has  reached  a  point 
in  develon-vent  where  increased  concentration  will  work  to  its 
iniury.f  not  because  of  too  great  density  of  population,  but  be- 
cause of  the  competition  from  the  attractive  districts  surrounding  it. 

Metropolitan  District.  H  the  existing  municipal  bound- 
aries are  obliterated  from  the  map  of  most  large  cities,  it  will  be 
found  that  the  broad  movements  of  population  are  usually  quite 
independent  of  them,  and  that  radiating  lines  of  development  ex- 
tend in  all  directions  as  far  as  the  topography  of  the  country  will 
permit,  until  the  limitation  of   time  or  cost  of  transportation  is 

rc3.cnc(j. 

This  limitation  finds  its  best  expression  in  the  _^o-minute  tifne- 
zone  (Plate  3)  which  generally  represents  the  limit  of  thickly 
settled  sections  for  the  reason  that  the  averagre  busmess  man  can- 
not afford  to  spend  more  time  in  transit.  If  settlement  is  found 
beyond  this  30-minnte  time  zone,  it  occurs  that  peculiar  attractions 
in  climate  and  location,  or  low  cost  of  land  and  fares  thereto,  com- 
pensate for  the  extra  time  required. 

The  time-zone  map  of  San  Francisco  reveals  the  peculiar  situa- 
tion that  although  the  greater  portion  of  its  area  could  be  reached 

Tnis  is  manifested  bv  the  notable  tendency  toward  apartment  buildings  rather 
than  homes  in  the  close-in  districts  of  the  city. 


PRESENT  CONDITIONS  ^ 

within  30  minutes  by  improved  methods  of  transportation,  yet  at 
the  present  time  only  about  half  of  its  area  has  been  developed.  On 
the  other  hand,  the  daily  migration  of  business  population  across  the 
Bay  presents  no  parallel  in  this  country,  with  the  exception  of 
New  York  City.  This  is  all  the  more  astonishing  when  it  is  con- 
considered  that  none  of  the  trans-bay  commuters  are  able  to  reach 
land  zvithin  50  minutes  from  the  business  center*  of  San  Francisco, 
20  or  30  minutes  additional  being  required  for  these  commuters  to 
reach  their  homes  in  Oakland,  Alameda,  Berkeley,  and  the  Marin 
County  suburban  towns. 

The  one  really  logical  development — by  steam  road  down  the 
Peninsula — shows  a  volume  of  traffic  which  is  relatively  inconsider- 
able, and,  moreover,  has  remained  practically  stationary  in  spite 
of  the  fact  that  millions  have  been  spent  in  the  construction  of  an 
improved  rail  entrance  into  the  city  by  tunneling  through  the  various 
ridges  interposed. 

That  this  extremely  unbalanced  development  has  occurred  in 
spite  of  more  rapid  Peninsula  service,  shows  that  it  is  largely  due  to 
the  high  cost  of  transportation.  This  is  apparent  from  a  compara- 
tive study  of  the  time-zone  and  rate-zone  (Plate  4)  maps  appended. 
While  a  five-cent  commuter  fare  reaches  the  north  of  Berkeley,  for 
the  same  time-distamce  down  the  Peninsula,  a  fare  of  13V3ct  is 
charged.  This  disparity  of  commuter  rates  is  directly  responsible, 
in  my  judgment,  for  the  peculiarly  erratic  development  of  San 
Francisco,  automatically  reserving  the  attractive  foothills  of  the 
Peninsula  Coast  Range  for  the  rich  land  owner. 

However,  one  fortunate  result  has  occurred.  Oakland  has 
reached  a  state  in  its  development  where  it  is  rapidly  becoming 
practically  a  self-supported  and  self-centered  city.  That  the  rapid 
trans-bay  suburban  expansion  of  the  past  few  years  cannot  con- 
tinue in  the  future  is  shown  by  the  fact  that  the  probable  limit  of 
quick  transit  has  been  reached  under  the  present  system  of  electric 
train  service  through  city  streets ;  and  as  the  fare  could  not  con- 
ceivably be  any  lower,  the  filling  up  of  the  suburbs  now  laid  out  will 
tend  to  determine  the  future  limits  of  trans-bay  settlement. 

San  Francisco,  on  the  other  hand,  will  always  continue  to  be 
the  business  and  social  center ;  and  instead  of  attempting  to  curtail 
trans-bay  development,  it  should  turn  to  the  development  of  the 
immense  acreage  within  its  own  borders  and  down  the  Peninsula. 
This  will  undoubtedly  come  through  improved  transportation  and 
as  a  reflex  of  the  Panama  Canal,  if  the  opportunities  are  taken 
advantage  of. 

•Third  and   Market   Streets. 

tThis  time-distance  is  an  average  corresponding  to  Redwood  Station,  midway  be- 
tween the  limits  of  local  time  to  Beresford  (fare  11.68  cents)  and  express  to  Palo  Alto 
(fare    15.83   cents). 


1^ 


6  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

A  most  essential  factor  is  that  transportation  must  precede  set- 
tlement of  any  territory.  Any  policy  which  attempts  to  reverse 
this  process  will  certainly  lead  to  utter  failure  to  develop  the  re- 
sources of  the  city  to  the  fullest  extent. 

Riding  Habit.  That  the  people  of  San  Francisco  are  respon- 
sive to  improved  transportation  is  shown  by  the  fact  that  the  riding 
habit,  as  expressed  in  earnings  per  capita  from  transportation,  is 
here  the  highest  of  any  city  in  the  country,  and  almost  twice  as  high 
as  the  average  city,  even  exceeding  Los  Angeles  in  this  respect. 
This  is  due  very  largely  to  the  prevailing  liberality  of  its  people, 
but  also  to  the  fact  that  the  earnings  from  transportation  are  partly 
made  up  from  daily  business  population,  while  the  census  is  based 
upon  sleeping  population.  And  inasmuch  as  the  daily  trans-bay 
commuter  traffic  is  fully  23  per  cent  of  the  population  of  San 
Francisco,  this  results  in  earnings  per  capita  as  high  as  $18  to  $20, 
as  against  $10  and  $12  for  the  average  American  city  of  moderate 
size.  This  fact  constitutes  the  one  prime  source  of  optimism  re- 
garding the  City's  future  development.  The  earning  capacity  is 
available.  It  only  remains  to  develop  a  transit  policy  commensu- 
rate to  the  opportunity,  and  to  execute  this  poHcy  with  courage 
and  dispatch. 

Topography.  By  a  peculiar  combination  of  topography,  San 
Francisco  is  virtually  shut  in  on  all  four  sides,  with  the  excep- 
tion of  a  narrow  pass  down  the  Mission  valley  around  the  base 
of  the  San  Bruno  Range.  But  the  possession  of  perhaps  the  finest 
harbor  in  the  world  is  more  than  compensation,  and  the  City 
should  consider  itself  fortunate  in  not  having  more  impassable  bar- 
riers. Within  the  city  limits  numerous  ridges  and  hills  interpose 
obstacles  which  not  only  render  transportation  expensive,  but  which 
inevitably  result  in  the  comparative  isolation  of  various  districts, 
such  as  Hayes  Valley,  Noe  Valley,  Eureka  Valley,  Pope  Valley, 
Happy  Valley,  Harbor  View,  Visitacion  Valley,  San  Miguel  Valley, 
etc.  Up  to  the  present  time,  this  isolation  has  had  one  unfortunate 
tendency,  viz.:  to  disorganize  the  City  into  numerous  small,  self- 
centered  communities,  whose  interests  have  become  so  diverse  (al- 
though, in  reality,  identical)  as  to  constitute  an  almost  insuperable 
barrier  to  wholesome  municipal  progress.  The  remedy  for  this  is 
quick  and  cofivenient  intercommunication,  which  can  hardly  be 
achieved  until  these  barriers  are  removed  by  means  of  tunnels 
through  the  intervening  hills. 

At  the  present  time  the  site  of  the  Panama-Pacific  Exposition 
in  Harbor  View  is  comparatively  isolated  in  this  manner,  and  will 
remain  so  until  steps  are  taken  for  adequate  transit  facilities.  This 
can  best  be  done  by  tunnels,  as  the  approach  grades  are  too  steep 


M 


PRESENT  CONDITIONS 


for  any  method  of  traction  except  the  cable  system,  the  capacity 
of  which  is  extremely  limited  as  compared  with  electric  traction. 

City  Plan.  Several  factors  contributing  very  greatly  to  the 
difficulties  in  providing  proper  transportation  are  directly  trace- 
able to  the  city  plan  of  San  Francisco : 

1.  The  unfortunate  rectangular  street  layout,  completely  ignor- 
ing the  contours  or  hillside  plan,  as  recommended  by  D.  H.  Burn- 
ham  and  others. 

2.  The  angular  position  of  the  streets  north  of  Market  Street 
permitting  no  supplemental  thoroughfares  parallel  to  Market 
Street  to  which  some  of  the  traffic  thereon  may  be  conveniently 
diverted. 

3.  Roadways  north  of  Market  Street  are  just  too  narrow  to 
permit  efficient  vehicle  traffic  in  addition  to  street  cars;  i.  e.,  two 
lines  of  vehicles  in  each  direction. 

Finally,  the  use  of  25-foot  lots,  which  encourages  concentra- 
tion and  ultimate  congestion  by  the  use  of  very  narrow  build- 
ings. 

It  is  most  unfortunate,  though  readily  understood,  that  the 
financial  condition  of  the  community  immediately  after  the  disas- 
ter of  1906  did  not  permit  of  some  improvements  in  the  City  Plan 
being  carried  out  which  would  serve  to  rectify  some  of  these 
blunders  in  the  original  plan,  and  particularly  in  the  way  of 
diagonal  supplemental  thoroughfares  by  which  the  hills  could  be 
avoided  and  short-cuts  found  for  more  convenient  transit;  but  it  is 
still  not  too  late  to  consider  some  of  these  enterprises,  and  this 
should  be  done  before  the  property  values  have  risen  to  prohibi- 
tive figures. 

And  it  is  recommended  that  the  City  do  these  things  in  the 
interest  of  rapid  transit,  irrespective  of  the  identity  of  private  or 
municipal  traction  interests. 

Climatic  Conditions.  The  prevalence  of  winds  and  fog  in 
the  Richmond  and  Sunset  districts  is  often  cited  as  the  reason 
for  the  delayed  development  of  these  sections.  I  believe  this  to  be 
largely  a  fallacy,  and  that  the  real  reason  is  the  absence  of  ade- 
quate service  from  utilities,  particularly  railway  and  water.  A 
recent  report  on  water  service  in  the  outlying  districts  by  your 
City  Engineer  confirms  this  conclusion.  Such  utilities  must  pre- 
cede settlement. 

There  are  numerous  sections  of  the  southwest  district*  that 
are  admirably  sheltered  from  the  prevailing  winds  and  fog  from 

*As  a  matter  of  fact,  even  the  anticipated  buijding  of  the  Market  Street  extension 
tunnel  has  caused  considerable  activity  in  the  development  of  some  of  these  desirable 
areas  south  of  the  Twin  Peaks  ridge. 


8 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


PRESENT  CONDITIONS 


the  ocean,  so  that  no  good  reason  exists  for  their  lack  of  devel- 
opment. Practically  all  of  the  down-Peninsula  acreage  is  thus 
sheltered  and  needs  only  cheap  and  rapid  transportation  to  bring 
about  a  development  similar  to  that  across  the  Bay. 

United  States  Weather  Bureau  reports  for  the  past  41  years 
indicate  the  following  normal  conditions  prevailing  in  San  Fran- 
cisco : 

Seasonal  temperature  range 50°  to  61°  Fahrenheit ; 

Mean  annual  temperature 55.2°         " 

Relative  humidity. 75%  ; 

Fair 158  days ; 

Fair  and  cloudy 295      '* 

Actual  precipitation 70     " 

Average  prevaiHng  sea  breeze 9.7  miles  per  hoar. 

During  the  working  day  (7  a.  m.  to  7  p.  m.)  it  is  found  that 
the  temperature  rises  to  a  mean  of  56°  Fahrenheit,  accompanied 
by  a  rise  in  wind  velocity  and  decrease  in  humidity,  these  factors 
combining  to  produce  ideal  working  conditions.  In  the  interior, 
the  reverse  is  usually  true  with  regard  to  wind  velocity.  These 
facts  need  only  comparison  with  conditions  of  Eastern  cities  to 
show  that  from  a  climatic  standpoint,  some  San  Franciscans  find 
fault  with  their  chief  civic  asset. 

Service  and  Rehabilitation.  Unlike  all  other  utilities,  there 
exists  in  the  street  railway  business  an  exceedingly  intimate  point 
of  contact  between  the  corporation  and  the  patron — the  street 
car — the  successful  operation  of  which  involves  an  additional 
human  element,  and  a  very  important  one — the  trainmen.  In 
the  light  and  power  business,  no  human  element  enters  between 
producer  and  consumer.  In  the  telephone,  only  a  distant  exchange 
enters.  In  the  railway,  the  consumer  is  daily  brought  into  most 
intimate  contact  with  the  Corporation,  its  physical  property,  and 
its  personality,  through  its  representatives,  the  carmen.  Service 
is  the  reflex  of  these  points  of  contact,  and  good  or  poor,  accord- 
ing as  the  integrity  of  the  physical  property  is  maintained,  and 
as  the  discipline  of  the  trainmen  is  rigidly  enforced. 

The  former  is  indicated  principally  in  the  condition  of  the  cars 
and  roadbed,  which  in  turn  reflects  either  the  financial  condition 
of  the  property,  or  the  desire  of  its  operators  for  dividends.  This 
condition  of  the  operating  property  has  been  determined  by  a  de- 
tailed examination  of  plant,  rolling  stock  and  roadbed,  which  re- 
veals the  fact  that  a  large  amount  of  rehabilitation  work  still  re- 
mains to  be  done  in  various  parts  of  the  city,  although  the  extensive 
reconstruction  following  the  disaster  of  1906  is  responsible  for  the 


% 


electric  track  in  many  parts  of  the  city  being  in  very  good  condi- 
tion at  the  present  time.  And  although  much  of  the  rolling  stock 
is  in  good  condition,  a  considerable  portion  will  have  to  be  retired 
at  an  early  date,  either  entirely  or  confined  to  the  outlying  dis- 
tricts, only  the  largest  and  most  modern  equipment  being  per- 
mitted on  the  down-town  streets.  The  introduction  of  the  prepay- 
ment principal  has  brought  about  the  necessity  of  certain  changes 
in  the  more  modern  equipment  now  in  operation,  especially  in 
platform  capacity,  so  that  even  with  the  addition  of  the  new  equip- 
ment contemplated,  much  rehabilitation  and  improvement  work  will 
have  to  be  carried  out. 

To  determine  what  service  standards  exist  in  San  Francisco,  a 
complete  traffic  count  of  the  entire  transit  system  has  been  made 
for  a  composite  normal  working  day,  together  with  supplemental 
observations  upon  street  and  pedestrian  traffic,  and  not  only  does 
this  count  cover  the  main  traffic  arteries  of  the  entire  city,  but  also 
involves  the  riding  habits  of  each  individual  line  or  route,  the  loca- 
tion of  zones  of  maximum  travel,  and  the  average  passenger  ride  of 
the  various  lines. 

The  results  of  these  traffic  counts  indicate  a  wide  variation 
in  the  general  character  of  service  on  the  individual  routes,  some 
of  which  appear  to  be  favored,  others  neglected,  both  with  respect 
to  frequency  of  headway  and  type  of  equipment,  resulting  in  ex- 
cessive car  loading  on  certain  routes,  all  of  which  can  only  be 
remedied  by  additional  equipment  and  re-routing  of  cars,  with 
such  service  redistribution  as  the  individual  route  counts  show  to 
be  necessary,  thus  saving  considerable  useless  car  mileage  for  opera- 
tion when  and  where  most  needed,  as  determined  by  the  riding 
habit  of  passengers.  Car  congestion  in  lower  Market  Street  and 
the  delays  in  running  schedule  resulting  therefrom  can  be  im- 
proved very  materially,  so  as  to  conserve  the  full  capacity  of  this 
important  thoroughfare,  and  similar  methods  of  relief  may  be 
applied  to  other  parts  of  the  system  with  immediate  results.  Re- 
commendations in  detail  are  made  in  Chapter  7. 

Although  the  Company  is  operating  practically  up  to  its  pub- 
lished schedule,  even  the  addition  of  the  65  new  cars  ordered  and 
the  few  being  reconstructed  at  the  Company's  shops  would  barely 
have  sufficed  to  realize  a  proper  standard  of  rush  hour  service,  at  the 
time  of  observation,  July,  1912,  irrespective  of  the  future  demands 
of  the  Panama-Pacific  Exposition  traffic. 

An  exceedingly  liberal  transfer  system  is  in  effect,  in  fact  so 
liberal  as  to  permit  of  extensive  "loop  riding"  for  a  single  fare, 
and  the  City  should  co-operative  in  any  feasible  plan  to  reduce  loop 
riding  without  considering  this   as   curtailment   of  the    franchise 


to 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


privilege,  for  every  return  fare  thus  stolen  by  a  dishonest  patron 
has  to  be  paid  for  by  the  honest  patron. 

One  important  fact  brought  out  by  the  examination  is  that 
the  present  traffic  of  electric  lines  is  far  beyond  the  maximum 
possible  capacity  of  any  cable  system. 

The  above  service  conditions,  when  viewed  in  the  light  of  events 
of  1906  and  1907,  need  not  appear  so  unfortunate  as  they  might 
do  otherwise  if  a  certainty  of  immediate  relief  were  assured.  Re- 
routing will  involve  some  readjustment  of  the  labor  schedule,  as 
any  increased  rush  hour  service  as  compared  with  day  service  will 
mean  an  increase  in  short-time  trainmen  or  "trippers."  Increased 
investment  will  be  necessitated  to  provide  this  rush  hour  service 
desired ;  and  all  these  factors  focus  in  the  corporate  income  account 
and  the  operating  ratio.  It  is  thoroughly  impracticable  for  a 
regulative  body  to  proceed  blindly  with  the  ordering  of  service 
or  equipment,  without  determining  whether  the  income  will  war- 
rant such  an  increase,  for  it  must  be  remembered  that  the  street 
railway  is  the  only  utility  operating  with  a  fixed  maximum  income 
unit — 5  cents — which  provides  no  flexibility  whatever  in  the  ad- 
justment of  operations  to  returns  as  in  other  utilities ;  and  necessi- 
tates the  cutting  of  the  operating  cloth  to  fit  the  Unancial  pattern. 
It  is  therefore  extremely  necessary  that  any  settlement  or  regula- 
tion be  based  upon  the  fundamental  fact  as  determined  by  the 
income  account  which  the  Company  should  cheerfully  furnish. 

Transit  Developments.  To  carry  out  the  necessary  develop- 
ment of  railway  extensions,  several  distinct  plans  have  been 
evolved  for  the  present  and  future,  and  from  the  several  standpoints 
of  a  private,  a  municipal,  and  an  ultimately  unified  system.  On 
the  theory  of  competition,  many  extensions  to  the  present  nucleus 
of  a  municipal  system  could  be  devised,  but  which  would  require 
duplication  of  capital  investment.  However,  from  an  economic 
standpoint,  duplication  of  investment  is  improper  and  unjustifiable ; 
so  that  the  municipal  system  may  find  its  most  logical  expansion 
along  lines  of  development  rather  than  competition.  This  is  the 
fundamental  idea  of  the  development  of  properties  inter-related 
from  a  capital  standpoint,  which  ultimately  must  gravitate  to  the 
ideal  situation — unification — one  city,  one  fare,  universal  transfers, 
unified  operation,  minimum  investment. 

At  the  present  time,  San  Francisco  absolutely  requires  a  large 
increase  in  mileage,  but  the  fact  exists  that  under  the  conditions 
that  have  been  imposed  (in  the  hope  of  immediate  results,  no 
doubt),  not  one  foot  of  extensions  may  be  expected  from  private 
capital.  Yet  some  of  these  extensions  are  most  pressing,  such  as 
additional  facilities  to  the  Exposition  site  in  Harbor  View. 


PRESENT  CONDITIONS 


II 


Legal  Matters.  The  legal  status  of  the  railway  utility  in  San 
Francisco  is  clear.  With  a  franchise  life  of  about  15  to  20  years, 
and  the  corporation  in  possession  of  main  thoroughfares  and  the 
lines  of  maximum  traffic  density,  it  will  be  possible  to  continue 
operation  to  the  end  of  the  franchise  term  with  every  assurance  of 
reaping  maximum  profit, — that  is,  the  "cream,"  leaving  the 
"skimmed  milk"  for  municipal  enterprise. 

The  present  franchise  situation  is  extremely  complicated  by 
overlapping  grants,  by  non-conformity  of  franchise  conditions,  bv 
the  lack  of  official  cancellation  of  portions  of  unused  franchises, 
etc.  Naturally,  having  acquired  numerous  competing  franchises, 
the  Corporation  has  abandoned  many  parts  in  the  interests  of  a  more 
coherent  and  efficient  operating  system.  And  it  appears  to  be  a  fact 
that  these  lapses  were  recognized  by  the  municipal  government 
without  invalidating  the  remaining  rights,  for  its  officials  have 
apparently  g^ven  a  left-handed  consent  by  taking  no  action,  and 
until  late  years,  not  even  seeing  to  it  that  the  Corporation  lived  up 
to  the  terms  of  its  various  franchises.  In  such  cases  of  lax  municipal 
control,  it  is  often  a  difficult  and  tedious  process  for  municipalities 
to  reclaim  their  rights  and  deferred  revenues  thereunder.  There- 
fore, it  seems  more  desirable  for  the  City  to  straighten  out  its 
present  affairs  and  to  provide  for  the  future  than  to  endeavor  to 
extract  questionable  compensation  from  the  uncertainty  of  the 
past.  And  an  attempt  might  very  well  be  made  at  this  time  to* 
clarify  the  franchise  situation  and  relieve  the  city  streets  of  present 
questionable  franchise  encumbrances  by  a  new  blanket  agreement 
in  the  form  of  a  co-operative  contract  franchise. 

Under  the  present  charter,  no  purchase  clause  is  in  eflFect  giving 
the  City  the  right  to  buy  the  existing  property  at  any  time,  and  so 
long  as  the  Corporation  conducts  its  financial  affairs  in  a  reasonable 
manner — that  is,  without  forcing  its  rate  of  return  to  the  utmost 
limit — it  stands  intrenched,  except  in  the  regulation  of  service.  As 
the  City  cannot  logically  impose  a  higher  standard  of  service  upon 
the  Corporation  than  upon  its  own  lines,  the  Corporation  need  have 
little  fear  from  the  City's  competition,  because  of  the  higher  operat- 
ing expenses  imposed  by  the  City  Charter  and  the  higher  investment 
that  has  prevailed. 

In  the  new  City  Charter  conditions  are  imp>osed  which  practically 
debar  private  capital  from  investment  in  San  Francisco,  whether  the 
point  of  view  of  the  capitalist  is  reasonable  or  not.  Two  facts  stand 
out  prominently : 

First — Private  capital  must  be  given  an  opportunity  to  secure 
its  investment  by  reclaiming  it  during  a  reasonable  term ;  and 


ill* 


: 


12 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Second — A  rate  of  return  must  be  ^aranteed  that  will  be  suffi- 
ciently attractive  under  average  conditions  of  the  financial  market, 
commensurate  with  the  risk  involved.  That  risk  is  involved  even  in 
so  apparently  insured  an  investment  as  street  railways  is  evidenced 
by  the  uncertain  future  of  traction  properties  throughout  the  entire 
country. 

These  Charter  provisions  and  the  underlying  theory  with  respect 
to  private  capital  will  have  to  be  modified,  or  else  it  is  incumbent 
upon  the  City  to  buy  its  utilities  at  once  at  a  considerable  premium. 
It  cannot  force  private  capital  to  invest  under  conditions  considered 
unprofitable.  At  the  same  time,  there  are  extensions  which  cannot 
be  made  by  the  City,  but  ought  to  be  made  by  the  Corporation,  and 
vice  versa.  And  it  is  believed  that  the  Corporation  would  then 
cheerfully  extend  into  non-competitive  territory,  even  in  the  face 
of  the  City's  avowed  intention  of  forcing  out  private  capital.  Certain 
steps  could  therefore  well  be  taken  at  the  present  time  to  remedy 
these  conditions: 

First — The  Charter  may  be  amended  so  as  to  make  private  in- 
vestment possible. 

Second — Present  corporate  franchises  may  be  merged  on  some 
equitable  basis  of  equalization  with  extension  franchises  desired. 

Third — Duplication  of  investment  may  be  avoided  by  non-com- 
petitive extensions,  with  the  object  of  ultimate  unification  of  the 
entire  property  at  the  lowest  possible  investment  cost. 

Without  a  real  solution  of  this  maior  problem,  all  of  the  minor 
activities  proposed  in  this  report  and  by  other  organized  bodies 
having  the  interests  of  the  City  at  heart  will  be  largely  frustrated 
The  question  of  a  sane,  reasonable,  and  workable  franchise  agree- 
ment between  the  City  and  the  United  Railroads  is  the  first  great 
matter  to  be  settled,  to  which  all  others  are  subordinate,  and  no 
time  should  be  lost  in  formulating  such  a  plan. 

It  is  necessary  to  say  here  that  the  evolution  of  this  mluch- 
desired  plan  will  not  be  furthered  by  the  use  of  old  arguments 
and  the  useless  discussion  of  former  abuses  and  unfortunate  occur- 
rences in  the  history  of  civic  and  traction  development,  by  both 
sides  of  the  controversy,  to  force  concessions.  Progress  is  not 
retroactive.  Conditions  exist  today  as  they  are,  without  reference 
to  the  past,  and  a  solution  must  be  found  for  today  and  tomorrow, 
rather  than  yesterday.  Consequently,  the  application  of  radical 
restraints  to  the  present  situation  will  utterly  defeat  the  purpose 
of  the  sober  and  determined  citizens  of  this  City  to  record  a  fresh 
page  in  the  history  of  their  civic  development. 

Regulation  and  Supervision.  The  most  hopeful  fact  in  rela- 
tion to  this  proposed  agreement  is  that  the  California  municipalities 


PRESENT  CONDITIONS 


13 


have  unquestioned  jurisdiction  over  their  public  utilities  in  a  regula- 
tive or  supervisory  capacity — that  is,  over  rates,  service  and  equip- 
ment, and  to  some  degree  over  extensions.  When  it  is  considered 
that  some  of  the  older  Eastern  cities  have  virtually  lost  control  of 
their  streets  and  through  gross  mis  judgment  have  awarded  fran- 
chises running  as  high  as  999  years  without  compensation,  with 
standards  of  service  on  the  lowest  plane,  with  the  corporations  on 
the  verge  of  bankruptcy  by  reason  of  the  excessive  burden  of  securi- 
ties issued  upon  these  perpetual  franchises,  with  the  riding  habit 
curtailed  by  this  poor  service,  and  with  little  hope  of  new  capital 
for  rehabilitation  and  extensions  under  the  prevailing  financial  plan, 
the  position  of  San  Francisco  is  enviable,  indeed.  The  power  lies 
within  its  hands  to  evolve  a  magnificent  transportation  system  under 
the  impetus  of  high  earning  capacity.  With  sane  regulation  and 
the  recognition  of  the  rights  of  private  capital,  it  will  be  possible 
for  the  City  to  develop  along  logical  lines,  both  its  municipal  and 
its  private  systems  with  a  certainty  of  ultimate  unification.  It  goes 
without  saying  that  such  regulation  must  be  practical  and  not  puni- 
tive, and  one  of  the  first  requisites  is  for  the  municipal  legislative 
body  to  create  and  maintain  a  commission  of  technically  trained 
men  to  carry  out  this  highly  technical  business  and  relieve  the  legis- 
lative body  from  the  consideration  of  the  innumerable  details  of 
such  a  business.  The  time  and  training  of  a  legislator  does  not 
permit  him  to  engage  in  the  operation  of  a  public  utility. 

Such  a  commission  must  have  complete  and  unquestioned  author- 
ity over  all  operating,  construction  and  financial  matters,  except 
the  purely  legislative  function  of  granting  franchises.  There  is  no 
middle  ground  of  divided  responsibility.  And  if  conditions  with 
regard  to  term  of  office,  compensation  and  technical  training  cannot 
be  made  so  as  to  create  a  commission  of  adequate  ability  and  of 
absolutely  independent  political  connection,  then  a  simple  bureau  or 
branch  of  the  City  government  would  be  preferable,  having  advisory 
and  investigative  powers  only.  But  the  former  would  be  more 
desirable,  and  is  directly  in  line  with  the  establishment  of  the  First 
and  Second  District  Commissions  of  New  York,  having  respective 
jurisdictions  over  the  City  and  State  of  New  York. 

Conclusions.  Summarizing,  the  foregoing  may  best  be  epito- 
mized in  the  form  of  a  development  program  stated  very  briefly  in 
the  introduction  to  the  report,  to  be  followed  out  by  both  City  and 
Company  in  eflFecting  a  solution  of  the  present  difficulties.  The 
City  has  unquestionably  been  greatly  handicapped  in  its  development 
by  the  failure  of  the  transit  companies  to  keep  pace  with  its  rapid 
rise  in  civic  standards,  as  well  as  in  magnitude.  But  the  problems 
of  the  future  have  not  been  fully  appreciated  in  the  past,  and  as  a 


i  I 


14 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


result  of  lax  municipal  control,  abuses  have  crept  in,  which  should 
now  be  remedied. 

On  the  other  hand,  the  present  corporation  is  in  a  measure 
struggling  with  an  inheritance  of  financial  evils  whose  oppressive 
nature  was  only  brought  to  light  by  the  disastrous  fire  and  strike. 
As  a  result  of  this  loss,  which  could  hardly  have  been  anticipated, 
it  finds  itself  in  straightened  finances,  unable  to  meet  the  higher 
standards  of  service,  and  with  credit  contracted  by  reason  of  the 
City's  expressed  determination  to  effect  complete  municipal  owner- 
ship of  its  utilities.  Additional  investment  must  have  security  of 
return,  and  with  impossible  conditions  imposed,  such  investment  is 
therefore  automatically  nullified. 

It  must  be  apparent  that  until  the  City  is  able  to  purchase  its 
utilities  at  a  fair  price,  it  must  depend  upon  them  for  service. 
Consequently  the  interests  of  City  and  Corporation  are  most  inti- 
mately identified  in  the  matter  of  transportation,  and  it  is  upon  this 
premise  that  the  improvement  program  of  Chapter  4  is  suggested. 


CHAPTER  2 

GROWTH  OF  EARNINGS  AND  INVEST- 
MENT IN  TRANSIT  FACILITIES* 

Estimate  of  Future  Growth  in  Population 

Prediction  of  Future  Earnings  and  Extensions 

Record  of  Business  and  Railway  Growth 

Railway  Investment  and  Relative  Purchasing  Power  of  City 

To  inlelligenily)  plan  for  the  development  of  a  comprehensive  transit 
s}fstem,  and  especially^  for  the  ultimate  unification  of  utilities  under  munic- 
ipal control,  it  is  essential:  (a)  to  review  transit  operations  up  to  the 
present  time,  in  order  to  ascertain  whether  growth  has  k^pt  pace  with  neces- 
sities; and  (b)  to  estimate  future  conditions  at  least  to  1930,  which  year 
will  mark  ^n  epoch  in  the  Cityi's  career,  due  to  the  expiration  of  about  two- 
thirds  of  the  present  franchises.  From  this  ma})  then  be  determined  what 
is  to  be  expected  from  the  Company  in  the  case  of  continued  private  owner- 
ship, or  what  the  financial  burden  upon  the  City  will  be  in  the  event 
of  municipal  ownership;  for  only  by  this  intensive  examination  may  the 
operating  and  financial  blunders  of  the  past  be  avoided,  both  now  and  in 
the  future.  In  this  chapter  is  presented  a  prediction  based  upon  careful 
scientific  analysis  of  the  future  growth  of  traffic  requirements,  transit  earn- 
ings and  investment,  in  comparison  with  the  estimated  bonding  power  of 
the  City  under  present  charter  provisions, 

CONCLUSIONS   AND    RECOMMENDATIONS 

1.  An  analysis  of  growth  shows  that  San  Francisco  is  now 
growing  faster  than  during  the  five  years  before  the  fire,  and  at 
a  rate  of  increase  about  145,000  per  decade.  The  real  growth  of 
the  city,  excluding  the  effect  of  the  fire,  has  been  at  the  rate  of 
54%  for  the  last  decade  as  against  22%  shown  by  the  census.  At 
the  present  time  the  city  contains  about  450,000  people.  This 
population,  on  the  conservative  basis  .assumed,  should  double  in  26 
years,  and  should  reach  1,000,000  people  in  1945  although  it  may 
far  exceed  this. 

2.  San  Francisco  and  the  commuter  district  now  has  a  popu- 
lation of  730,000  people,  and  has  increased  48%  in  the  last  decade. 
This  population  should  double  in  23  years,  reach  1,000,000  in  1919, 
and  2,000,000  in  1945. 

•Formerly    Preliminary    Report    No.    19,    Submitted    Jan.    2.    1913. 


16 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


3.  In  spite  of  this  rapid  growth,  other  large  cities  of  the 
Pacific  Coast  are  growing  on  the  average  at  a  rate  probably  50% 
faster  than  San  Francisco. 

4.  As  a  result  of  the  fire,  San  Francisco  lost  100,000  people 
permanently.  The  trans-bay  cities  gained  in  population  by  an 
amount  practically  equal  to  San  Francisco's  loss.  But  traffic 
statistics  show  that  Oakland  and  its  surrounding  communities 
are  becoming  self-supporting  to  such  an  extent  that  the  exodus 
from  San  F'rancisco  has  practically  ceased,  and  that  Oakland  will 
go  forward  at  a  normal  rate  as  a  suf)plementary  community. 

5.  One  beneficial  result  of  the  fire  was  a  general  exodus  of 
residents  from  the  congested  "inner  city"  to  the  suburbs,  amount- 
ing to  66,000  people  in  the  last  census  period.  This  has  neces- 
sarily increased  railway  earnings  and  should  therefore  have  made 
possible  correspondingly  improved  service.  The  present  dis- 
tribution of  population  within  the  30-minute  time  zone  is  unusually 
uniform,  except  Chinatown  and  Japtown.  The  outlying  distribu- 
tion indicates  that  people  will  live  where  proper  streets  and  car 
service  facilities  are  provided. 

6.  The  growth  and  interchange  of  population  within  the 
district  shows  that  the  broader  movements  of  population  abso- 
lutely disregard  municipal  boundaries.  The  idea  of  a  Metropoli- 
tan District  Control  for  the  development  and  regulation  of  utili- 
ties and  industries  is  therefore  of  unusual  necessity  for  San 
Francisco  and  the  Bay  cities. 

7.  A  review  of  industrial  growth  shows  that  the  period  of 
great  activity  occurring  just  before  the  fire  was  practically 
recovered  by  1910,  and  that  commercial  operations  now  generally 
exceed  those  of  1905.  The  fact  that  bank  clearings  suffered  no 
perceptible  depression  during  the  disastrous  year  of  the  fire 
indicates  the  sustaining  power  of  the  financial  credit  of  the  com- 
munity. 

8.  Manufacturing  within  the  Industrial  District  has  alone 
failed  to  keep  pace  with  the  population  within  the  last  decade. 
In  this  respect  the  Bay  cities  have  gained  directly  from  San 
Francisco's  heavy  loss.  The  evident  need  for  a  more  united 
Industrial  District  points  unmistakably  to  the  practical  value  of 
the  Metropolitan  District  Control  idea  alread}^  suggested. 

9.  An  analysis  of  railway  earnings  shows  that  they  are  in- 
creasing in  proportion  to  the  square  of  the  population — that  is, 
when  the  population  doubles,  earnings  quadruple.  United  Rail- 
roads earnings  alone  should  double  in  the  next  13^^  years — i.  c, 
should  reach  $16,000,000  by  1924-5 — and  should  quadruple  by 
1942.  Earnings  per  capita  are  now  the  highest  in  the  country — - 
$20  per  capita  for  all  companies. 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


17 


10.  In  extension  of  track  mileage,  San  Francisco  is  at  least 
six  years  behind  the  necessities  of  the  growth  in  population. 
Trackage  should  extend  at  least  as  fast  as  the  population,  if  not 
faster.  The  total  track  mileage  is  now  about  the  same  as  before 
the  fire,  due  to  abandonments,  and  the  last  15  years  shows  a 
slower  growth  than  at  any  period  of  the  city's  history.  This 
delayed  construction  must  now  be  made  up. 

11.  The  present  necessities  for  track  extension  require  about 
15  miles  per  year  up  to  1920.  This  will  be  just  sufficient  to  com- 
plete the  extension  schedule  called  for  in  Chapter  3,  and  is  also 
required  to  catch  up  with  the  normal  growth  in  population. 
From  1868  to  the  time  of  the  Market  Street  Railway  Co.  consolida- 
tion in  1893,  track  mileage  was  extended  at  the  rate  of  8.1  iTkiles 
per  year ;  during  the  maximum  period,  16  miles  per  year.  Since  the 
consolidation,  the  rate  of  growth  has  only  averaged  3.6  miles  \)cr 
year. 

12.  The  total  operating  equipment  of  all  companies  in  1911 
was  676  cars.  Prior  to  the  fire,  there  were  many  more  cars 
reported,  but  of  smaller  capacity,  averaging  about  30  seats,  as 
against  about  42  seats  at  the  present  time.  Several  hundred  obso- 
lete and  worn  out  cars  were  retired  in  1907. 

13.  The  total  seating  capacity  at  the  present  time  appears 
to  be  about  the  same  as  before  the  fire,  but  it  is  a  question 
whether  the  service  capacity,  in  proportion  to  traffic,  is  as  great 
even  in  view  of  the  increased  schedule  speed,  owing  to  the  exodus 
of  population  from  the  inner  city  to  the  outlying  districts  within 
the  last  census  period. 

14.  Assuming  the  new  equipment  now  on  order  by  the  United 
Railroads  had  been  available  to  rectify  the  service  requirements 
of  1911,  the  future  growth  of  the  city  until  1920  will  require  an 
average  addition  of  from  40  to  50  cars  per  year.  This  is  a  mini- 
mum schedule  that  can  be  carried  out  without  materially  diluting 
the  net  earning  capacity,  as  San  Francisco  has  already  the  highest 
earning  rate  from  its  equipment  of  any  large  city  in  the  country. 
From  1889  to  1896,  an  average  of  67  cars  per  year  was  added  to 
the  system  with  maximum  rates  of  increase  within  the  period  of 
from  140  to  200  per  year. 

15.  The  only  way  the  above  increase  in  equipment  called  for 
may  be  reduced  is  through  the  more  efficient  use  of  available  car 
miles  by  improved  routing  and  by  further  increase  in  schedule 
speed.  The  size  of  the  car  units  has  about  reached  a  maximum 
for  the  streets  of  this  city. 

16.  That  the  extension  schedule  of  track  and  cars  called  for 
here  is  not  unreasonable  is  further  indicated  by  the  fact  that  out 
of  the   annual   budget   of   investment   predicted,    about   25%    will 


18 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


remain  up  to  1920  for  betterments  of  existing  property  over  and 
above  the  investment  in  new  extensions  and  equipment. 

17.  An  analysis  of  the  purchasing  power  of  the  City  with 
respect  to  its  utilities  shows  that  the  underlying  property  valua- 
tion is  increasing  at  a  slower  rate  than  the  necessary  railway 
investment— viz. :  as  the  1.7  power  of  the  increase  in  population, 
instead  of  the  square  as  in  the  case  of  earnings.  At  the  very 
lowest  estimate,  $3.00  of  capital  must  be  invested  for  every  $1.00 
earned.  Under  the  present  bond  limit,  therefore,  the  City's  ability 
to  purchase  or  build  is  becoming  more  and  more  inadequate,  thus 
requiring  a  progressive  refunding  basis. 

18.  The  present  available  purchasing  power  of  the  City  is 
approximately  $51,000,000  for  all  purposes,  including  water 
supply.  By  1930  the  total  railway  investment  required  will  be 
$62,000,000;  by  1950,  $123,000,000.  This  means  that  over  one- 
third  of  the  total  bonding  capacity  of  the  City  on  its  present  15% 
basis  would  be  continually  pre-empted  for  railway  investment 
alone,  assuming  the  City  entirely  free  from  debt. 

19.  If  the  City  of  San  Francisco  declines  to  accept  the  assist- 
ance of  private  capital  in  financing  its  utilities  both  for  the  present 
antl  the  future,  the  conclusion  cannot  be  evaded  that  a  revision  of 
the  bond  limit  must  be  secured  immediately  in  order  to  provide 
the  capital  necessary  for  preserving  the  normal  rate  of  growth 
of  the  city  as  herein  predicted. 

GENERAL  DISCUSSION 

Of  the  various  factors  involved  in  the  growth  of  a  large  city, 
two  stand  out  predominantly  as  absolute  indices  of  the  city's 
growth : 

1.  Growth  and  density  of  population. 

2.  Increase  in  property  values. 

The  first  is  a  measure  of  the  source  of  income  to  all  utilities. 
The  second  is  a  measure  of  the  wealth  and  purchasing  power  of 
the  city  with  respect  to  municipal  undertakings.  Supplementing 
these,  a  fair  index  of  commercial  growth  is  afforded  by  banking 
transactions  in  cities  that  are  large  enough  to  maintain  an  inde- 
pendent clearing  house. 

Growth  in  Population 

Reviewing  the  history  of  San  Francisco,  the  growth  has  been 
so  rapid  and  erratic  that  unusual  caution  in  predicting  for  the 
future  is  necessary.  Referring  to  the  graphical  record,  Fig.  1,  it 
will  be  seen  that  the  city  grew  with  extraordinary  rapidity  from 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


19 


II 
l! 


FIGURE    1— ARNOLD    PREDICTION    OF    FUTURE    POPULATION,    SAN    FRAN- 
CISCO AND   COMMUTER  DISTRICT. 

Upon  a  prediction  of  population  growth  fundamentally  rests  the  possible 
future  of  transportation,  traffic,  earnings,  service  and  investment.  The  con- 
servative nature  of  this  estimate  for  San  Francisco,  shown  by  the  heavy  black 
line,  is  apparent  from  comparison  with  the  other  curves  of  possible  future 
growth  which  are  presented  for  this  purpose.  The  Commuter  District  includes 
all  communities  commercially  tributary  to  San  Francisco.  Note  the  rate  of  in- 
crease for  the  next  decade,  thus — San  Francisco  34%  or  including  the  Com- 
muter District  407t. 


20 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


1860  to  1880.  Then  ensued  a  period  of  retarded  rate  of  growth 
until  1902,  when  a  new  period  of  unprecedented  activity  began, 
extending  up  to  the  time  of  the  fire,  with  an  average  rate  of 
growth  of  about  30,000  per  year.  Had  the  average  rate  from  1900 
to  1905  continued,  San  Francisco  today  would  have  had  a  popula- 
tion of  approximately  550,000  people.  At  the  present  time,  1912, 
the  population  is  approximately  450,000. 

Effect  of  the  Firelof  1906.  As  a  result  of  the  fire,  the 
population  in  1907  stood  practically  the  same  as  in  1902.  But  it 
is  an  encouraging  fact  that  since  this  time  the  city  has  grown 
faster  than  the  average  before  the  Hre,  viz. :  20,000  persons  per  year, 
so  that  the  real  rate  of  growth  of  San  Francisco  within  the  last 
decade  has  been  at  the  rate  of  54%  as  against  21.6%  shown  by  the 
census  figures.  This  higher  rate  is  only  exceeded  by  two  decades 
in  its  past  history.  Just  prior  to  the  disaster,  the  population  of  this 
city  has  been  estimated  as  450,000  (on  a  basis  of  average  school 
attendance).  Following  the  fire,  an  immediate  exodus  of  275,000 
people  took  place  (based  upon  General  Greeley's  estimate).  If  this 
estimate  is  correct,  about  100,000  people  have  never  resettled  in 
San  Francisco. 

This  is  confirmed  by  considering  the  expansion  of  transbay  resi- 
dence territory  outside  of  the  industrial  district,*  such  as  Marin 
County  and  the  Peninsula.  But  it  is  also  true  that  the  metropolis 
is  regaining  lost  ground  at  a  rapid  rate,  and  will  continue  to  do 
so.  In  fact,  transbay  traffic  statistics  indicate  that  Oakland,  Ber- 
keley and  Alameda  are  rapidly  becoming  commercially  self-cen- 
tered and  self-supporting,  and  San  Francisco  and  Oakland  will 
continue  to  grow  in  the  future  as  supplemental  communities  with- 
out any  further  marked  transference  of  population  such  as  occurred 
after  the  fire.  This  is  as  it  should  be,  and  it  remains  only  for  San 
Francisco  to  develop  the  attractive  residence  districts  within  its  own 
borders  to  maintain  its  present  rapid  growth. 

The  influence  of  the  great  fire  in  accelerating  the  growth  of  the 
suburban  Bay  communities  has  been  marked.  Oakland,  by  census 
estimate,  had  gained  but  5,700  people  between  1900  and  1905,  but 
increased  78,000  between  1905  and  1910.  Similarly  Berkeley 
gained  5,400  population  during  the  first  five  years  and  22,000  during 
the  last.  The  entire  bay  industrial  district,  exclusive  of  San 
Francisco,  increased  only  15,000  between  1900  and  1905,  and  114,- 
000  thereafter,  within  the  decade. 

Future  Growth.  The  analysis  upon  which  the  future  growth 
is  based  has  included  the  following  considerations : 

•Including   San   Francisco.   Oakland,   Alameda,   Berkeley,   and  Township   No.    1    of  San 
Mateo  County. 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


21 


8 


P 


10 


o 

a 

S 


o 
o 


8 

CO 

I 

8 

V0 


O 

o 


I 


s 


FIGURE  2-ANALYSIS   OF  LIMITING   RATES   OF  POPULATION    GROWTH. 

A  survey  of  this  nature  is  necessary  to  reach  reasonable  conclusions  for 
the  future  in  a  city  subject  to  such  erratic  growth  as  San  Francisco.  These 
curves  demonstrate  the  indisputable  fact  that  cities  grow  with  a  decreasing 
rate  of  increase.  For  example,  it  was  found  that  normal  Eastern  cities  of 
500,000  inhabitants  grew  at  a  rate  of  185,000  in  10  years,  or  36  per  cent  (see 
curves,  dotted  code),  while  at  a  population  of  1,000,000  the  rate  had  decreased 
to  27  per  cent,  although  the  actual  increase  was  290,000  per  decade.  Any  fixed 
rate  or  percentage  compounded  through  a  long  period  would  usually  lead  to 
impossible  results.    This  study  forms  the  basis  of  the  prediction  curves,  Fig.  1. 


22  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

1.  San  Francisco,  the  commercial  metropolis  of  the  West. 

2.  Effect  of  the  opening  of  the  Panama  Canal. 

3.  Temporary  effect  of  the  Panama-Pacific  Exposition. 

4.  Climatic  and  scenic  advantages  of  San  Francisco. 

5.  Effect  of  unusual  isolation  of  San  Francisco. 

6.  Growth  of  other  Pacific  Coast  cities. 

7.  Normal  and  slow  growth  of  Eastern  cities. 

8.  Maximum  and  minimum  past  growth  in  San  Francisco. 

The  basis  of  analysis  is  best  indicated  by  the  growth  charac- 
teristic curve,  Fig.  2,  in  which  the  actual  increase  per  decade  is 
recorded  at  various  stages  of  growth  in  the  development  of  cities. 
Thus,  for  a  city  of  450,000  inhabitants,  such  as  San  Francisco  at 
the  present  time,  an  actual  increase  per  decsde  is  recorded  as  fol- 
lows : 

Eastern  cities,  slow  growth 105.000  per  decade 

San  Francisco,  slow  growth 125,000  per  decade 

Eastern    cities,    max.    normal 170,000  per  decade 

Other  Pacific  Coast  cities 210,000  per  decade 

Arnold   estimate,   San    Francisco 145,000  per  decade 

These  composite  curves  recognize  an  unquestioned  fact  in  the 
growth  of  cities  that  normal  growth  takes  place  with  a  decreasing 
rate  of  increase.  The  conservative  nature  of  the  rate  finally  se- 
lected for  San  Francisco  will  be  apparent  from  a  study  of  this 
curve.  It  is  neither  optimistic  nor  pessimistic.  And  although 
the  predictions  may  very  likely  fall  short  of  the  next  census,  it 
would  be  entirely  improper  to  recognize  erratic  growth,  although 
such  may  have  been  recorded  in  the  past.  From  the  "Arnold 
Normal  Growth  Curve"  the  following  prediction  for  the  future 
City  of  San  Francisco  is  obtained : 

San   Francisco — 

Decade  Decade  Increase 

Ending  ^  percent  /A?nfK^^ 

(1912)  estimated  (450,000) 

1910  21.6  416,912 

1920  34  558,000 

1930  29.3  722,000 

1940  25  909,000 

1950  23.3  1,121,000 

In  establishing  the  initial  percentage  for  the  present  decade, 
the  probable  fact  has  been  given  weight  that  a  considerable  part 
of  the  permanent  loss  due  to  the  fire  will  be  made  up  by  the  per- 
manent gain  due  to  the  Exposition. 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


23 


Commuter  District.  It  is  desirable  to  predict  in  the  same  man- 
ner the  growth  of  the  commuter  district  that  may  be  properly 
termed  tributary  to  San  Francisco  (as  defined  in  Table  2).  Prac- 
tically the  same  basis  of  analysis  has  been  used,  and  although  an 
extraordinarily  rapid  growth  of  the  Bay  cities  has  occurred  with- 
in the  past  decade,  the  rates  used  have  been  tempered  with  due 
conservatism : 


San  Francisco 

and  Commuter  District — 

Decade 

Decade  Increase 

Ending 

per  cent 

Population 

(1912) 

estimated 

(788,000) 

1910 

47.5 

730,000 

1920 

40 

1,019,000 

1930 

34 

1,366,000 

1940 

29 

1,760,000 

1950 

25 

2,202,000 

A  clear  idea  of  the  extent  of  this  commuter  district  may  be 
best  obtained  from  the  General  Transportation  Map,  Plate  2,  show- 
ing both  electric  and  steam  lines  entering  the  city,  and  those  con- 
verging from  the  surrounding  districts  to  the  bay  ferries.  More- 
over, the  relative  growth  within  the  last  two  decades  is  indicated 
in  order  to  give  a  graphical  picture  of  the  correct  position  of  San 
Francisco  in  respect  to  its  neighboring  communities.  For  example, 
the  Alameda  County  cities  have  more  than  doubled  their  popula- 
tion in  the  last  decade,  while  San  Francisco  improved  upon  its  pre- 
vious 10-year  growth.  Or  considering  all  of  the  commuter  towns 
only,  it  is  found  that  the  population  has  more  than  doubled,  while 
with  San  Francisco  included,  the  total  rate  of  increase  has  been 
nearly  48%,  the  highest  of  the  last  three  decades.  This  commuter 
district  including  San  Francisco  differs  from  the  "Industrial  Dis- 
trict" of  the  census  by  including  many  residential  suburbs  not  de- 
voted to  manufacturing. 

Distribution  and  Density  of  Population.  It  will  be  well 
for  those  interested  in  the  growth  of  the  city  to  study  carefully 
distribution  map,  Frontispiece,  which  represents  accurately 
the  distribution  of  population  of  the  1910  census  by  the  actual  enu- 
merating districts.  Two  so-called  "congested  districts"  of  the  city 
are  clearly  evident  as  "Chinatown"  and  "Japtown."  The  for- 
mer has  the  greater  density,  although  by  the  splitting  of  assembly 
districts  in  1910,  the  actual  figures  of  density  do  not  appear  as 
high  as  in  Japtown  at  the  present  time.  (See  Table  3.)  Out- 
side of  these  two  districts,  those  parts  of  the  city  that  may  be  now 
reached  by  transit  lines  are  found  to  be  settled  quite  uniformly. 


24 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


FIGURE  3— TERRITORIAL  GROWTH  OF  SAN  FRANCISCO. 

Municipal  boundaries  have  very  little  relation  to  the  broad  movements  of 
population  as  compared  with  transit  service.  In  studying  growth  of  trans- 
portation it  is  therefore  necessary  to  know  whether  the  census  records  actually 
cover  the  settled  districts  tributary  to  the  various  transit  lines  of  the  city. 
In  San  Francisco  the  city  boundaries  have  generally  preceded  settlement. 
Starting  with  the  village  Verba  Buena,  indicated  in  black,  now  entirely 
within  the  business  district,  the  city  boundaries  quickly  expanded  within  four 
years  of  its  incorporation  to  the  intersection  of  Divisadcro  and  Twenty-sec- 
ond streets ;  and  only  five  years  later,  upon  the  consolidation  of  the  City  and 
County  of  San  Francisco,  to  the  San  Mateo  County  line.  San  Francisco's 
tributary  population  will  probably  not  expand  to  any  great  extent  down  the 
Peninsula  until  more  convenient  rapid  transit  facilities  are  provided. 

The  30-minute  time  zone  practically  marks  the  limits  of  heavily 
settled  districts  and  will  continue  to  do  so  even  after  more  rapid 
means  of  transportation  are  provided. 

From  this  map,  Frontispiece,  it  needs  no  arc^iiment  to  reach 
the  reasonable  conclusion  that  with  adequate  transportation  and 
other  utilities,  Richmond,  Sunset,  Merced  and  Visitacion  need  not 
long  remain  practically  unpopulated  as  at  the  present  time. 

If  the  city  be  divided  into  three  zones,  thus : 

(1)  Within  the  one-mile  circle ; 

(2)  Between  one  and  three-mile  circles; 

(3)  Outside  the  three-mile  circle. 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


25 


Population, 
Inner  City. 

Area,  in  Acres, 
Inner  City. 

Density. 
Persons  pel 
Inner  City. 

•  Acre.^ 
Outlying 

157,400 

1765 

89 

6.6 

152,000 

1789 

85 

6.9 

86,200 

1725 

50 

15.0 

it  is  found  that  today  only  75,000  people  live  within  the  one-mile 
circle,  98,000  outside  of  the  three-mile  circle,  with  244,000  in  the  in- 
termediate zone;  and  that  while  the  densities  of  the  inner  and  in- 
termediate zones  are  nearly  the  same,  that  of  the  outer  zone  is 
only  six  persons  per  acre,  approximately  one-sixth  of  that  within 
the  three-mile  circle,  which  to  a  certain  degree  corresponds  to  the 
30-minute  time  zone  previously  mentioned. 

Taking  the  U.  S.  census  for  the  last  three  decades,  a  further 
comparison  may  be  made  on  the  basis  of  assembly  districts  (Plate  5), 
although  the  continually  changing  boundaries  of  these  districts 
make  a  direct  comparison  of  local  centers  dilftcult  as  between  census 
periods.  However,  the  census  records  are  illuminating  as  applied 
to  the  so-called  "inner  city,"  shown  within  the  heavy  boundary 
lines  of  Plate  5  and  covering  approximately  the  district  bounded 
by  Van  Ness  Avenue  on  the  west  and  Bryant  Street  on  the  South. 


Year 

1890 
1900 
1910 


From  these  data,  it  is  clear  that  as  a  result  of  the  fire,  the  inner 
city  has  very  greatly  changed  in  its  character  of  settlement  and 
has  lost  about  71,000  population,  while  the  outlying  district  has 
increased  189,000.  This  means  that  owing  to  extensions  of  transit 
lines,  the  inner  city  has  been  transformed  into  a  business  district, 
and  the  former  population  has  scattered  to  the  residential  and 
suburban  areas.  This  is  as  it  should  be,  and  although  the  exten- 
sive building  of  apartments  and  hotels  within  the  inner  city  will 
draw  the  great  majority  of  transients,  it  is  not  believed  that  this 
movement  will  materially  affect  the  migration  of  the  homeseeker 
to  the  many  attractive  suburbs  available,  provided  transit  exten- 
sions keep  pace  with  this  expansion. 

Finally,  considering  the  smallest  civil  division,  it  appears  that 
the  maximum  density  of  any  district  of  San  Francisco  occurred 
in  1890—224  persons  per  acre  in  the  district  including  Chinatown, 
with  six  other  districts  of  the  inner  city  above  100  per  acre.  In 
1900,  the  maximum  density  was  141  per  acre,  with  only  three  dis- 
tricts above  100  per  acre.  In  1910  the  maximum  density  had 
fallen  to  70  persons  per  acre  in  Japtown,  entirely  outside  of  the 

*  These  figures  of  density  deduct  all  the  unpopulated  areas  such  as  parks,  reservations 
and  waterlot  areas. 


p  '«" 


26 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


so-called  "inner  city.*"  This  unquestionably  indicates  the  exodus 
of  residence  population  out  of  the  business  district,  which  is  de- 
sirable and  necessary  to  the  healthy  growth  of  a  municipality. 
This  cannot  fail  to  greatly  enhance  the  necessity  for  and  earnings 
of  street  railway  properties  in  the  future  by  an  increased  riding 
habit. 

Commercial  Growth 

Incidental  to  this  study,  the  graphic  record  of  commercial 
growth,  Fig.  4,  has  an  important  bearing,  as  follows : 

Population  by  census  years,  bank  clearings,  assessed  valuation 
oi  property,  real  estate  assessed,  real  estate  sales,  building  opera- 
tions, telephone  calls,  post  office  receipts. 

Property  valuation  reflects  the  fundamental  underlying  wealth 
of  the  community,  bank  clearings  measure  its  major  financial 
operations,  and  post  office  receipts  oflfer  a  fair  indication  of  the 
general  prosperity  of  the  average  citizen. 

A  general  review  of  these  records  shows  a  period  of  great 
activity  in  San  Francisco  from  1900  up  to  the  depression  of  1906. 
But  by  1910,  the  city  had  practically  recovered,  and  is  now  pro- 
gressing at  an  encouraging  rate. 

Bmk  Clearings  have  maintained  a  normal  increase  since  1896, 
and  are  now  47%  above  1905.  It  is  a  significant  fact 
that  although  bank  clearings  suffered  a  temporary  check  during  a 
few  months  after  the  fire,  the  total  clearings  for  the  year  1906 
actually  increased  at  a  normal  rate  and  were  only  checked  by  the 
wide-spread  financial  depression  of  1907-8,  since  when  the  pre- 
vious rapid  increase  has  taken  place. 

Property  Valuation  remained  fairly  constant  up  to  about 
1888  (with  the  exception  of  a  temporary  increase  in  1880)  and 
has  since  increased  at  a  normal  rate  up  to  1905.  Since  the  fire 
*hc  valuation  has  increased  at  about  the  same  rate  as  before  the 
fire.  Fig.  4  indicates  the  relative  amount  of  operative  property 
exempt  from  city  taxation. 

Real  Estate  Value,  as  assessed  exclusive  of  improvements, 
shows  that  the  fundamental  basis  of  land  is  barely  as  high  as  be- 
fore the  fire,  and  that  the  assessment  is  hardly  keeping  pace  with 
the  total  property  assessment  upon  which  the  purchasing  power 
of  the  City  is  based. 

Real  Estate  Sales  show  a  sudden  increase  from  1900  to  1905 
with  the  exception  of  two  intervening  years.  Since  the  fire,  prog- 
ress has  been  slow,  but  the  last  year  indicates  a  renewed  growth. 

•Even   these    maximum   densities    in    San    Francisco    are    small    compared    with    other 
citiei.  such  as  the  lower  East  Side.  New  York,  which  exceeds   1.200  per  acre. 


I 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


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FIGURE  4— EVIDENCES  OF  COMMERCIAL  GROWTH  OF  SAN  FRANCISCO. 

To  plan  consistently  for  the  future,  a  knowledge  of  the  past  is  essential 
in  order  that  erratic  growth  may  not  lead  to  false  conclusions.  This  study 
presents  the  most  important  indices  of  the  underlying  commercial  strength  of 
the  community,  which  alone  determines  the  future  of  the  city,  both  in  popu- 
lation and  resulting  transit  development.  In  spite  of  the  depressions  of  1906 
and  1908,  San  Francisco  is  again  moving  forward  at  a  satisfactory  rate,  espe- 
cially during  the  last  year,  and  its  commercial  operations  now  generally  ex- 
ceed those  of  the  previous  high  point — 1905. 


;  t 


28 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Building  Operations  followed  a  normal  growth  from  1898  to 
1905.  Naturally  the  tremendous  building  activity  resulting  from 
the  fire  could  not  be  maintained.  Since  1910.  however,  building 
operations  have  again  gone  forward  at  a  normal  rate. 

Telephone  Calls  are  increasing  at  a  consistent  rate,  having 
practically  doubled  since  the  fire. 

Postoffice  Receipts  show  the  most  uniform  and  healthy  growth, 
with  only  comparatively  small  depression  as  a  result  of  the  fire, 
and  have  more  than  doubled  in  the  last  decade. 

Manufactures.  Finally,  an  examination  of  the  Census  reports 
of  the  operation  of  the  industrial  district  of  San  Francisco  before 
and  after  the  fire  indicates  some  startling  facts,  detailed  in 
Table  4.  Comparing  the  three  years  1900,  1905,  and  1910,  it 
is  found  that  both  the  number  of  factories  and  persons  employed 
were  less  in  1910  than  the  year  before  the  fire,  although  the  value 
of  products  had  slightly  increased.  On  the  other  hand,  a  very 
rapid  increase  in  manufactures  had  taken  place  during  the  five 
years  preceding  the  fire.  Furthermore,  it  appears  that  what  San 
Francisco  has  lost  as  a  result  of  the  fire  has  been  a  direct  gain 
to  the  Bay  cities  of  the  industrial  district.  If  these  records  are 
analyzed  on  a  per  capita  basis,  it  appears  that  while  the  percentage 
of  population  employed  in  San  Francisco  in  manufactures  has 
decreased  by  nearly  one-fifth,  that  of  the  Bay  cities  has  increased 
by  about  the  same  amount,  but  also  that  the  per  cent  employed 
for  the  entire  industrial  district  was  lower  in  1910  than  in  1905 
or  1900.  The  total  value  of  products  per  capita  has  also  decreased. 
This  record  clearly  indicates  the  serious  fact  that  up  to  1910 
manufacturing  has  not  kept  pace  with  the  growth  in  popula- 
tion, and  that  the  industrial  district  must  become  more  united 
in  developing  the  manufacturing  facilities  which  the  Bay  shores 
aflFord.  This  furnishes  an  additional  argument  for  the  establish- 
ment of  a  Metropolitan  District  Control  in  such  matters  of  com- 
mon interest  as  utilities  and  industries. 

Prediction  of  Traffic  and  Service 

The  final  object  of  this  analysis  of  growth  is  a  prediction  of 
future  transit  earnings,  the  necessary  equipment  and  the  cor- 
responding investment  required  to  produce  those  earnings,  thus 
making  it  possible  to  determine  beforehand  the  ability  of  the  City 
to  assume  the  burden  of  this  investment. 

An  analysis  of  the  relative  growth  in  earnings  of  street  rail- 
ways, and  population,  in  many  cities  of  this  country,  has  devel- 
oped a  clearly  defined  mathematical  law.     And  although  there  are 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


29 


some  cities  varying  considerably  from  this  general  law,  the  great 
majority  closely  adhere  to  it,  as  stated  below : 

That  the  total  annual  railway  earnings  increase  ap- 
proximately as  the  square  of  the  increase  in  population ; 
that  is,  by  the  time  the  population  doubles,  transit  earn- 
ings will  have  increased  four-fold.  Or  in  other  words, 
the  earnings  per  capita  will  increase  approximately  in 
direct  proportion  to  the  increase  in  population. 

This  relation  may  best  be  shown  graphically  as  in  Fig.  5, 
wherein  are  shown  the  results  of  four  decades  of  development  in 
San  Francisco,  together  with  a  prediction  for  four  decades  into 
the  future.  Barring  the  erratic  development  in  the  last  decade, 
especially  1905-1908,  the  averages  for  the  period  are  instructive. 
While  the  rate  of  growth  in  earnings  from  1900-1903  considerably 
exceeded  the  average,  due  to  delayed  increase  in  population,  and 
on  the  other  hand  the  reverse  condition  appears  from  1908  to  1911, 
it  is  safe  to  say  that  San  Francisco  at  least  approximates  if  not 
exceeds  the  law  above  stated,  and  will  continue  to  preserve  that 
relation  for  at  least  the  remainder  of  the  present  decade — /'.  r.,  to 
1920. 

By  way  of  illustration,  the  following  figures  would  result  if  the 
law  of  the  squares  were  applied  to  the  present  San  Francisco  for 
several  consecutive  decades  before  and  after  the  present  time : 


L.\W 

OF  THE  SQUARES. 

Population. 

Per  Capita. 

Earnings. 

200,000 

$  8.75 

$  1,750.000 

400,000 

17.50 

7,000.000 

800,000 

35.00 

28,000.000 

However,  it  must  be  recognized  that  in  San  Francisco,  owing 
to  its  limited  ability  to  grow  within  its  present  boundaries,  there 
will  come  a  time  when  a  "saturation  point"  will  be  reached  in  the 
possibilities  of  adequate  service  from  surface  line  extensions  within 
the  city  limits  and  a  decline  in  growth  of  total  traffic  and  earnings 
must  then  set  in,  unless  rapid  transit  facilities  are  undertaken  so 
as  to  properly  serve  the  outlying  districts  undergoing  development 
Therefore,  in  this  prediction.  Fig.  5,  the  index  of  growth  has 
been  progressively  decreased  by  decades  from  2.0  at  the  present 
time  to  1.5  in  1950.  This  is  done  with  the  full  knowledge  that  rapid 
transit  facilities  must  come  sooner  or  later,  which  alone  will  revive 
the  total  earning  power  of  the  system,  as  has  been  the  case  of  other 
cities.  This  estimate  may  then  be  regarded  more  as  an  index  of 
surface  railway  operations,  although  possibly  including  some  rapid 
transit  development. 


I 


30 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


F'LTURE    G^CWT 


FOF  ui.-^Tiorj 


AT*  OfW 


PlAl  .WAY 


iLUAfioR 

cduWtK' 


P  10  »iim 


ii--^-rMjn 


^ 


p 


la 


itrl 
o 


100 

so 

AO 
70 
60 

50 
40 

30 
20 


10 


oopoo 


6     7    S  9  lOOCJOOO 


FIGURE  5— ANALYSIS  OF  MATHEMATICAL  LAW  OF  GROWTH. 
Upon  this  law  rests  the  future  of  the  city  in  respect  to  transit  earnings  and 
investment  in  the  necessary  railway  properties.  It  answers  the  question,  How 
fast  will  earnings  and  investment  grow  with  reference  to  the  population?  San 
Francisco  has  exceeded  many  other  cities  in  the  past  with  earnings  growing 
faster  than  the  square  of  the  population ;  and  valuation  of  property  somewhat 
below  this  rate.  This  means  that  when  the  population  doubles,  property  valua- 
tion more  than  triples,  and  earnings  quadruple.  The  broken  guide  line  in- 
dicates this  square  relation.  A  line  parallel  thereto  conforms  to  this  law. 
For  the  distant  future  the  rate  of  earnings  has  been  conservatively  decreased, 
as  this  study  refers  largely  to  surface  transportation,  not  including  expensive 
rapid   transit   projects. 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


31 


On  this  modified  basis  the  predicted  earnings  then  stand  as  fol- 
lows, with  the  approximate  traffic  resulting  therefrom,  which  may 
be  taken  for  this  purpose  on  a  basis  of  a  flat  5-cent  fare  (Table  5)  : 

PREDICTION— MODIFIED   LAW   OF   THE   SQUARES. 


Population. 

Earnings 
per  Capita. 

Earnings 
per  Year. 

Revenue 
Passengers 
per  Year. 

Total 
Passengers 
per  Year.* 

Approx 
imate 
Year. 

200,000 
400,000 
800.000 

$  8.75 
17.50 
31.25 

$     1,750,000 

7,000,000 

25,000,000 

35,000,000 
140,000,000 
500,000,000 

52,500,000 
210,000,000 
750,000,000 

1876 
1909 
1934 

Increase  in  Equipment 

It  has  been  impossible  to  obtain  complete  official  records  of 
equipment  prior  to  the  fire,  as  accurate  utility  records  were  not 
then  compulsory.  While  the  records  here  presented  do  not  en- 
tirely agree  with  recent  official  data,  they  will  suffice  to  illustrate  in  a 
general  way  the  development  in  this  city. 

Track  Mileage.  The  record  of  total  track  construction,  Fig. 
6,  indicates  a  uniform  growth  from  1868  to  1889  of  about  six  miles 
per  year,  then  an  extremely  rapid  increase  from  1889  to  1896  of  16 
miles  per  year,  during  which  period  the  Market  Street  consolida- 
tion took  place.  No  further  increase  is  recorded  up  to  1902,  when 
rapid  building  again  ensued  until  stopped  by  the  great  fire  of  1906. 
Since  the  fire,  extensions  have  about  offset  abandonments,  so  that 
the  total  track  has  remained  practically  constant.  Summarizing, 
an  average  of  8.1  miles  per  year  was  maintained  from  1868  up  to 
the  time  of  the  Market  Street  consolidation  in  1893,  and  since  then 
only  about  3.6  miles  per  year.  Thus,  the  last  15  years  of  growth  has 
been  slower  than  any  previous  considerable  period  of  time  in  the 
history  of  the  city,  even  during  the  original  horse-car  days.  What- 
ever the  cause,  this  can  only  be  interpreted  as  a  retrenchment  of 
that  natural  growth  essential  to  the  welfare  of  the  city  which  finds 
its  logical  result  in  the  present  necessity  for  a  very  large  increase  in 
mileage  to  compensate  for  the  delayed  expansion. 

•Assuming  50%  transfers. 

Footnote:  Explanation  of  Graphical  Analysis.  This  studv.  Fig.  5,  differs  from  the  ordi- 
nary method  in  that  the  relation  between  the  two  variables — earnings  and  population — is 
plotted  on  logarithmic  cross-section  paper  instead  of  the  usual  rectilinear  section  paper. 
There  is  this  difference:  Assuming  that  earnings  increase  as  the  square  of  the  in- 
crease in  population,  this  relation  on  linear  section  paper  would  show  a  rapidly  ascending 
curve  of  earnings:  but  on  logarithmic  section  paper  the  curve  becomes  a  straight  line, 
with  a  slope  of  two  to  one.  And  any  other  relation  between  two  variables  that  plots 
out  with  a  slope  of  two  to  one  mav  be  recognized  at  once  as  conforming  to  this  law 
of  the  squares.  Similarly,  a  relation  with  a  slope  of  three  to  one  conforms  to  the  cube. 
Hence,  on  logarithmic  paper  it  is  only  necessary  to  focus  attention  on  the  slope  of  the 
line  to  determine  accurately  the  mathematical  law;  and  any  line  parallel  to  the  guide 
line  shown  on  Fig.  5 — i.  e.,  having  the  same  silope — follows  the  law  that  doubling  the 
population  quadruples  the  earnings.  Although  it  is  to  some  extent  unsafe  to  apply  a  law 
rigidly  so  far  into  the  future  that  a  complete  revolution  in  transit  methods  might  occur, 
it  is  at  least  safe  to  follow  this  law  for  a  decade  hence.  The  fact  that  th«  law  of  the 
squares  has  been  approximated  in  the  past  with  four  different  methods  of  motive  power 
indicates   the   reasonableness   of   this   conclusion. 


32 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


BION  J.  ARNOLD 


1910 


FIGURE  6— GROWTH  OF  TRACK  MILEAGE  IN  SAN  FRANCISCO. 
This  record  shows  three  decades  of  normal  and  continuous  growth,  fol- 
lowed by  a  period  of  extremely  rapid  growth  coincident  with  the  introduction 
of  electric  traction.  But  since  the  consolidation  of  the  Market  Street  system 
the  growth  has  been  erratic  and  on  the  average  comparatively  slow.  The 
almost  complete  revolution  in  the  method  of  railway  propulsion  for  the  last 
two  decades  is  clearly  shown.  Data  prior  to  the  fire  may  be  subject  to  slight 
error,  but  are  sufficiently  accurate  for  indicating  general  tendencies.  From 
1889  to  1896  the  system  grew  at  an  average  rate  of  over  16  miles  of  track  per 
year.  Since  the  Market  Street  consolidation  in  1893  the  growth  has  averaged 
only  3.2  miles  per  year.     (See  Table  8.) 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


33 


Analyzing  this  growth  with  reference  to  population,  it  appears 
that  the  track  mileage  increased  faster  than  the  population  from 
1860  up  to  1896,  since  when  it  has  fallen  behind.  It  is  not  an  un- 
reasonable conclusion  that  if  transportation  companies  found  it 
possible,  up  to  the  time  of  consolidation  of  the  properties,  to  extend 
their  lines  at  a  much  faster  rate  than  the  population,  that  a  rate 
at  least  proportional  to  the  increase  in  population  can  now  be  main- 
tained until  such  time  as  surface  extensions  have  reached  their  limit. 
According  to  this  basis  of  normal  increase,  a  total  of  100  miles  would 
be  required  for  the  next  decade. 

But  this  assumes  that  the  present  trackage  is  adequate,  which 
it  not  the  case.  As  a  matter  of  fact,  the  extension  schedule  is  from 
6  to  9  years  behind.  And  moreover,  to  carry  out  the  program 
of  extensions  that  are  definitely  needed  as  detailed  in  Chapter  3,  120 
rrtiles  of  new  track  will  be  required,  probably  by  1920,  the  con- 
struction of  which  would  call  for  an  average  rate  of  about  15  miles 
per  year,  which  is  less  than  has  previously  occurred  in  San  Fran- 
cisco.   Of  this,  the  major  part  falls  to  the  United  Railroads. 

Car  Equipment.    The  graphical  record  of  car  equipment.  Fig. 
7,  shows  a  gradual  replacement  of  horse  and  cable  cars  by  elec- 
tric equipment  since  1895.     It  also  indicates  that  the  total  number 
of  single  cars  used  in  San  Francisco  today  is  practically  the  same 
as  in  1889,  prior  to  the  establishment  of  electric  service,  and  only 
about  half  the  total  number  reported  in  1896.     This  record,  how- 
ever, is  probably  based  on  total  cars  onmcd,  as  reported  by  thfe 
companies   in   the   available   statistical   records.     Furthermore,   the 
present  cars  are  much  larger,  and   a   uniform   definition   of  car 
unit  was  not  in  all  cases  used.     The  records  prior  to  the  fire  must 
therefore  be  interpreted  with  caution,  and  probably  include  much 
equipment  either  obsolete  or  retained  for  emergency  service  only. 
The  present  equipment  as  now  reported  does  not  any  longer  include 
the  large  number  of  obsolete  cable  and  horse  cars  that  are  still  in 
evidence  at  some  of  the  old  car  houses  in  various  parts  of  the  city. 

From  the  curve  it  is  apparent  that  several  hundred  of  these  cars 
were  retired  at  the  time  of  the  fire,  and  from  actual  observations 
the  entire  system  is  now  being  reported  practically  upon  a  basis  of 
operative  cars. 

An  eflFort  was  made  to  determine  this  gain  or  loss  in  equipment 
from  the  official  records  of  operating  car  units  upon  which  license 
taxes  were  paid  to  the  City.  Prior  to  1898  the  records  appear  en- 
tirely undependable.  The  disparity  between  total  equipment  re- 
ported and  operating  cars  is  great.    Thus,  out  of  a  total  of  1146 


34  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


■ION  J.  ARNOUD 


1200 


IIOO 


lOOO 


iaa9  1891 


I8»6 


I90I 


I906 


1911 


FIGURE  7-GROWTH   AND  CHANGE  IN  CAR  EQUIPMENT. 

This  record  probably  does  not  represent  cars  ^^'""fy^^l'^'l^J^^^^^ 
the  fire,  as  it  is  based  upon  equipment  reported  as  owned. ,  T^,^^^^"°^X"',,7, 
crease    n  equipment  is  due  to  the  retirement  of  several  t^undred  cable  cars 
cither  worn  out  or  obsolete,  by  reason  of  the  change  in  motive  power.    Sukc 
the  fire  the  record  covers,  in  general,  only  cars  available  ^^r  servu:e^     1^^ 
average  seating  capacity  per  car  probably  increased  during  this  change  trom 
30  seats  to  42  seats,  or  40  per  cent.     (See  1  able  /.; 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


35 


cars  in  1898,  taxes  were  paid  on  only  600  equipments.  After  the 
fire,  however,  taxes  have  been  paid  on  a  greater  proportion  of  the 
total  equipment — at  the  present  time,  on  88%  of  the  total. 

The  principal  point  of  interest  in  this  exhibit  is  a  net  change  in 
seating  capacity  from  1905  to  the  present  time.  The  official  public 
statements  (for  taxable  purposes)  of  all  car  equipment,  Table  7, 
showed  921  United  Railroads  cars  in  1905  and  669  in  1912.  Counts 
in  1912  indicated  661  for  the  United  Railroads  system.  These  old 
cars  probably  contained  28  to  34  seats  each ;  an  average  of  30  seats 
may  be  assumed.  Traffic  counts  during  1912  showed  607  United 
Railroads  cars  in  operation ;  these  average  about  42  seats  each.  In 
other  words,  with  about  the  same  estimated  population,  the  seating 
capacity  is  now  practically  the  same  as  before  the  fire. 

But  in  this  period  66,000  residents,  nearly  one-half  of  the  popu- 
lation of  the  ''inner  city"  or  walking  district,  moved  to  other  parts 
of  the  city,  thus  becoming  dependent  upon  car  service.  This  addi- 
tional traffic  represents  15%  of  the  population  of  the  entire  city. 
On  the  other  hand,  the  United  Railroads  system  has  increased  in 
schedule  speed  within  the  same  period  12%,  with  a  corresponding 
increase  in  service  capacity  for  the  same  equipment.  Whether  the 
service  has  fully  recovered  since  the  fire  is  therefore  a  question. 
In  any  event,  it  is  clear  that  the  present  equipment  is  far  short  of 
the  requirements  of  service  brought  about  by  the  general  growth 
of  the  city,  as  determined  by  actual  counts  (Chapter  7). 

It  now  remains  to  estimate,  for  the  entire  traction  system,  the 
proper  rate  of  increase  in  car  equipment  and  car  mileage  for  the 
future.     This  may  be  approximated  by  several  methods,  as  follows : 


*1. 
2. 
3. 


Assuming  a  uniform  density  in  cars  per  mile  of  track, 
and  increasing  in  proportion  to  track  mileage. 

Assuming  a  fixed  income  per  car  year,  and  thus  increas- 
ing in  proportion  to  the  gross  earnings. 

Assuming  a  fixed  operating  ratio,  expenses  per  car  mile, 
and  car  mileage  per  car  year,  and  increasing  in  propor- 
tion to  the  gross  earnings.     (See  Table  6.) 


•First — The  c?<r  Hen?'*v  resiiUine  from  a  totol  of  741  car«!  avfraces  for  1911  2.5? 
cars  per  mil"  of  track.  For  a  total  trackage  in  1920  of  414  miles  there  will  be  required 
1.04.'^  operating  cars:  or  addine  S'Yc  for  reserve  and  renair.  a  total  of  1.095  cars,  equivalent 
to  39  cars  added  per  year.  This  represents  a  minimum,  as  the  car  density  in  San  Fran- 
cisco   is   low. 

Second — The  averap^e  income  in  1911  for  741  cirs  ws  $11,600.  which  is  much 
hifrher  th^n  in  other  cities.  For  eross  earnings  in  1920  of  $13,100,000.  a  total  of  1.176 
cars  would  he   reauired,   or   48   per   vear. 

Third — Tflkine  the  present  oneratintj  ratio,  including  taxe«.  of  6i%,  an  oocating 
exoense  of  20  cents  per  car  mile,  and  the  present  yearly  mileage  per  car  of  36.700 
miles,  the  estimated  earninss  for  1920  of  $13,100,000  will  require  a  total  of  1.218  cars, 
or   S3   per  year. 


36 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


The  total  operated  equipment  for  all  companies  for  1912  was 
676t  cars;  or  adding  thereto  the  65  new  cars  now  on  order,  741 
cars,  upon  which  predictions  may  be  based. 

Thus  it  appears  that  on  the  present  operating  basis.  39  to  53 
cars  per  year  should  be  added  to  the  entire  system.  (See  Page  157.) 
That  this  latter  rate  is  entirely  practicable  is  shown  by  the  fact  that 
it  would  permit  earnings  of  about  10  per  cent  on  the  investment,  as- 
suming $3.50  invested  for  each  $1.00  of  earnings. 

The  only  way  in  which  this  car  purchase  schedule  can  be  re- 
duced for  the  same  service  is  that  proportionate  economies  in 
operating  car  mileage  be  introduced  by  means  of  increased  speed 
and  effective  re-routing  of  present  lines.     (See  Chapter  7.) 

Purchaiing  Power  of  the  City 

The  tax  assessment  roll  may  be  taken  as  a  measure  of  the  pur- 
chasing power  of  the  City  in  the  construction  or  acquisition  of 
great  public  works.  At  the  present  time,  the  bond  limit  is  fixed  at 
15%  of  the  assessment,  with  only  about  $51,000,000  available  for 
all  utility  purposes,  by  reason  of  the  failure  of  the  electors  to  per- 
mit the  City  to  bond  itself  outside  of  the  present  debt  limit  for 
revenue-producing  utilities,  such  as  water  and  street  railways. 
There  will  thus  be  available  for  future  acquisition  of  such  prop- 
erties an  annual  amount  proportionate  only  to  the  increase  in  total 
property  valuation. 

Analyzing  the  past  growth  graphically  (Fig.  5),  it  is  found 
that  in  San  Francisco  the  value  of  real  estate  and  improvements 
has  increased  since  1873  at  a  rate  proportional  to  the  1.7  power 
of  the  increase  in  population— that  is,  nearly  as  the  2.0  power  or 
square   as   above   referred   to   in    discussing   growth   of   earnings. 
This  rate  exceeds  that  of  most  of  the  older  cities  of  the  East. 
However,   it   appears   thrat   the  personal   property  valuation   has 
increased  less  rapidly  than  the  realty,  with  the  result  that  an 
average  index  of  growth  of  only  1.5  power  has  been  maintained 
in  the  past,  upon   which  the  bond   limit   is  computed.     For   the 
future,  it  is  believed  that  the  realty  values  will  control,  and  con- 
sequently the  total  assessment  roll  has  been  predicted  upon  the 
index  basis  of  1.7  power.    From  these  totals  must  be  deducted 
operative  property  that  is  now  exempt  from  City  taxation  through 
recent  changes  in  the  State  tax  laws. 

Investment  Necessary.      The  final  deductions  from  the  fore- 
going analysis  are  fraught  with  the  greatest  importance,  not  only 

tFrom   record   nf   car   Ucenset   paid.    Table   7.      This   it    13    greater   than    the    actual 
number  found  on  the  itreeta  but  i>  used  inasmuch  as  it  is  a  public  record. 


GROWTH  OF  EARNINGS  AND  INVESTMENT 


37 


to  San  Francisco,  but  to  every  municipality  Contemplating  exclu- 
sive municipal  ownership.  In  the  proper  expansion  of  a  utility 
s)^stem,  a  definite  ratio  between  investment  and  earnings  must 
exist ;  for  example,  in  street  railways  from  three  to  four  dollars 
of  capital  must  be  invested  under  modern  conditions  of  opera- 
tion and  with  a  flat  five-cent  fare,  to  produce  a  standard  property 
and  equipment.  The  future  earning  capacity  has  already  been 
determined.  By  applying  this  ratio,  the  total  investment  neces- 
sary results,  with  which  may  then  be  compared  the  purchasing 
power  of  the  City  under  the  present  basis  of  assessment  and 
taxation.   The  actual  figures  are  given  below: 

FINANCIAL   SUMMARY    OF   FUTURE    GROWTH 

Year   1912        1920        1930        1940        1950 

Population   (thousands)    443  558  722  909        1,121 

Street  railway  earnings  (millions)         8.4  13  21  30         '  41 

Total   assessed   valuation    for   city 

and  county  (millions) 511  750       1,160       1,710       2,420 

Investment  in  street  railway  prop- 
erty of  $3  to  $1  earned  (min- 
imum)  (millions) 25  39  62  90  123 

Bond    limit     (15%     of    valuation) 

(millions)    77         113  174         257         363 

Per  cent  of  present  bond  limit 
necessary  for  railway  invest- 
ment           Z2>  34.8         35.9         35.1         33.9 

This  table  shows  that  an  average  investment  of  at  least 
$1,750,000  per  year  will  be  required  to  1920.  Comparing  there- 
with the  required  investment  rate  called  for  in  this  report,  it 
is  found  that  15  miles  of  track  and  50  new  cars  per  year  will 
leave  a  substantial  proportion  of  the  annual  budget  available 
for  betterments  of  existing  property— probably  25%,  or  $450,000 
per  year.  This  shows  the  reasonable  nature  of  the  extension 
schedule  called  for. 

The  assumption  of  an  investment  ratio  as  low  as  $3.00  per 
$1.(X)  earned  must  be  clearly  stated  as  applying  only  to  a  system 
which  is  properly  expanded  year  by  year  in  proportion  to  the 
growth  in  population,  and  the  above  table  shows  probably  the 
minimum  investment  necessary  to  develop  such  a  system.  If 
rapid  transit  undertakings  in  any  form  should  be  carried  out 
during  the  intervening  period,  a  considerably  higher  investment 
ratio  would  result,  somewhat  according  to  the  following  plan : 

Rapid  transit  subways  $6.00  to  $8.00 

Electrified  steam  lines 4.(X)  to     6.00 

Street  railways  3.00  to     4.00 


38 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Nor  is  it  correcf  to  even  assume  that  the  United  Railroads 
investment  will  continue  along  this  curve  so  long  as  a  practical 
monopoly  in  San  Francisco  is  maintained ;  for  unless  an  agree- 
ment can  be  reached  between  the  City  and  the  Company  pro- 
viding for  normal  development  and  extensions,  it  is  entirely 
possible  that  the  United  Railroads  will  be  content  with  earn- 
ing out  of  the  present  system  all  that  is  possible  up  to  the  termi- 
nation of  its  franchises.  As  the  City  has  no  power  to  compel 
extensions,  the  traffic  density  will  continually  increase  and  the 
proportionate  net  earnings  likewise. 

From  the  above  it  must  be  evident  that  unless  some  revision 
is  made  in  the  basis  of  the  bond  limit  for  the  purposes  of  investment 
in  municipal  utilities,  the  City  can  never  hope  to  either  acquire  nor 
much  less  construct  a  complete  transit  property  of  the  character 
necessary  to  meet  its  great  future.  The  above  table  shows  that  over 
one-third  of  the  total  bonding  capacity  on  the  present  basis  would 
be  continually  pre-empted  for  railway  investment  alone,  assum- 
ing the  City  entirely  free  from  debt. 

It  is  necessary  to  state  plainly  that  these  conclusions  can- 
not be  evaded.  The  investment  must  be  made  if  the  transit  facil- 
ities of  San  Francisco  are  to  advance  in  proportion  to  its  needs, 
and  it  was  for  this  reason  that  the  provisions  of  Charter  Amend- 
ment No.  34  were  so  drawn  as  to  permit  private  capital  to  assist 
municipal  development  until  such  time  as  the  City  could  take 
over  its  utilities  upon  an  adequate  bonding  basis  as  in  the  case 
of  New  York  City  in  its  latest  subway  acquisitions. 


1 


V 


CHAPTER  3 

DEVELOPMENT  OF  TRANSIT  SYSTEM* 

Unified  and   Municipal  Lines 

Facilities  for  Serving  Panama-Pacific  Exposition 

Rapid  Transit   Development 

San  Francisco,  unlike  manp  other  cities,  is  not  over-expanded,  n>h:ch, 
coupled  rvith  the  rapid  growth  confronting  the  cit^  due  to  the  opening 
of  the  Panama  Canal  and  the  Exposition,  as  Well  as  the  verp  inadequate 
transportation  facilities  now  available,  makes  street  railway  extensions  of 
most  immediate  and  far-reaching  consequence.  Further,  the  comparative 
isolation  of  Harbor  View  and  the  service  requirements  of  the  Exposition 
render  the  determination  of  a  satisfactory  plan  for  this  service  imperative. 
In  this  chapter,  extensions  essential  to  a  complete  operating  transit  system 
are  recommended  to  satisfy  both  present  and  future  needs.  This  considera- 
tion of  future  extensions  is  necessary  to  provide  a  definite  plan  of  improve- 
ment and  to  avoid  haphazard  development.  For  the  purpose  of  consider- 
ing independently  the  extension  of  the  municipal  system,  the  general  pro- 
gram is  subdivided  into  both  private  and  municipal  competitive  lines. 
Special  attention  has  been  given  to  developing  adequate  transportation  and 
terminal  facilities  for  the  Exposition,  both  with  and  without  tunnels, 
designed  to  form  part  of  a  complete  and  efficient  transit  system  after  the 
close  of  the  Exposition.  Such  consideration  is  given  to  rapid  transit  .pro- 
jects as  appears  warranted  by  the  present  state  of  traffic  development. 

l.    EXTENSIONS,  IMMEDIATE  AND  FUTURE 

Basis  of  Plan.  The  extensions  herein  recommended  are 
designed  mostly  for  a  unified  operating  system,  irrespective  of  otvn- 
crship—i.  e.,  with  a  system  developed  only  with  reference  to  the 
best  needs  of  the  respective  districts,  and  with  duplication  of 
capital  investment  eliminated.  But  this  unified  plan  does  not  in 
any  manner  prevent  the  future  control  by  the  City  of  all  of  its 
traction  lines,  and  mav  be  regarded  at  the  present  time  as  simply 
the  best  means  to  a  much-desired  end— adequate  service.  From 
the  standpoint  of  the  patron,  the  ideal  condition  of  service  neces- 
sitates one  city,  one  fare,  universal  transfers. 

However,  plans  are  also  presented  for  the  subdivision  of  this 
unified  program  of  development  into  its  component  parts,  one  of 

♦Formerly  Preliminary   Report   No.    10,   submitted   Dec.   2,    1912.  and   Dec.    7,    1912. 


40 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


41 


FIGURE  8— PRINCIPAL  SUGGESTIONS   FOR  RAILWAY  EXTENSIONS. 

Incorporating  all  the  principal  ideas  of  improvement  clubs,  commercial 
organizations  and  individuals  for  extensions  within  the  city;  also  such  addi- 
tional or  modified  extensions  as  are  recommended  in  this  report.  Some  of 
the  evident  duplication  of  parallel  lines  results  from  a  desire  for  a  com- 
petitive Municipal  system.  No  attempt  to  distinguish  between  urgent  and 
future  extensions  is  made  here.  Various  tunnel  projects  are  indicated  m 
white. 


which  contemplates  a  privately  operated  system,  and  the  other  a 
municipally  operated  system,  both  covering  the  entire  city  as  far  as 
possible,  and  operating  in  direct  competition.  But  such  a  plan 
necessarily  results  in  extensive  duplication  of  investment  along 
parallel  streets  and  consequently  duplication  of  service.*  (Fig,  10.) 

In  planning  this  program  of  extensions,  a  thorough  study  has 
been  made  of  the  topography,  available  thoroughfares,  and  physi- 
cal obstructions  throughout  the  entire  city,  with  a  view  to  secur- 
ing the  most  practical  results ;  and  the  necessary  street  improve- 
ments involved  are  treated  later,  Chapter  12.  It  suffices  here  to 
note  that  the  city  may  derive  great  advantage  from  a  compara- 
tively small  amount  of  improvement  work.  The  major  improve- 
ments in  the  City  Plan  have  been  so  thoroughly  covered  in  the 
Burnham  report  that  only  such  minor  and  relatively  inexpensive 
projects  are  here  contemplated  as  are  essential  to  the  proper 
development  of  the  city  and  its  transit  system  in  the  near  future. 

Similarly,  definite  consideration  is  later  given,  in  the  location 
of  these  exionsions,  to  improved  car  routing  and  distribution  of 
service.  Particularly  may  be  mentioned  the  necessities  of  so- 
called  cross-town  lines,  making  possible  inter-communication 
between  various  local  centers,  of  Which  there  are  many  in  San 
Francisco.     (See  Chapter  7.) 

In  fixing  upon  needed  extensions  all  of  the  suggestions  of  im- 
provement clubs  and  commercial  organizations  have  been  ana- 
lyzed, and  while  many  of  them  have  been  found  impracticable 
owmg  to  existing  physical  obstructions,  mostly  excessive  grades, 
some  of  them  are  entirely  warranted,  and  are  induded  herein! 
Fig.  8  shows  most  of  the  more  feasible  extensions  suggested.  Of 
particular  value  may  be  mentioned  the  Merchants'  Association 
report,  submitted  in  1907. 

It  is  of  interest  to  note,  in  this  connection,  that  of  all  the  ex- 
tensions shown  therein  (some,  I  understand,  were  practicalh 
agreed  to  by  the  United  Railroads),  there  have  only  been  con 
structed  short  lines  on  Gough  Street,  Ninth  Avenue,  Fulton 
Street,  Cortland  Avenue,  and  through  Visitacion  Valley,  and  that 
most  of  the  extensions  of  recent  years  have  been  financed  through 
the  assistance,  either  directly  or  indirectly,  of  the  property 
owners  benefited  thereby;  also,  that  there  have  been  no  railway 
extensions  whatever  built  under  franchises  granted  since  the  last 
charter  amendments  took  effect. 

*A11  of  these  extensions  are  indicated  on  relief  man*    FiV    in  ^r,A  e^^  *•  ^-  j 

listed  in  detail  in  Tables  10  and   12   (Appendix)   dSfiS^as  to   lfX.7  "^*''''-^-^",'*  "5 


INTENTIONAL  SECOND  EXPOSURE 


40 


SAN   FRANCISCO  TRANSPORTATION   FACILITIES 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


41 


I'KilRK   s      l»kl.\(  ll'AI.   SrcCKS  TioNS    TOU    UAILWAV    KXTKNSK  )NS. 

hicorpnratin.t;"  ;ill  ilu-  principal  ideas  of  iniprovcnunt  clnlt-.  coninurcial 
or«;aiii/aii<>  1".  and  individiial>  for  e\icn>ions  uitliin  tin.'  city;  al-o  »ucli  addi- 
ti(»nal  or  niodilk-d  extensions  a>  are  rec<)nunended  in  t]ii>  report.  Some  of 
the  evi<lenl  dnplieation  of  ])arallel  lines  re>nlts  from  a  de>ire  for  a  com- 
jietitive  .Mnnicii)al  system.  Xo  altenii)t  to  di>tinsiui>li  between  nr^ent  and 
future  exlenions  i*  made  here.  Various  tunnel  jjrojects  are  indicated  in 
white. 


which  contemplates  a  frivatcly  operated  system,  and  the  other  a 
municipally  operated  system,  both  covering  the  entire  city  as  far  as 
possible,  and  operating  in  direct  competition.     But  such  a  plan 
necessarily  results  in  extensive  duplication  of  investment  along 
parallel  streets  and  consequently  duplication  of  service.*  ( Fig.  10. ) 
In  planning  this  program  of  extensions,  a  thorough  study  has 
been  made  of  the  topography,  available  thoroughfares,  and  physi- 
cal obstructions  throughout  the  entire  city,  with  a  view  to  secur- 
ing the  most  practical  results;  and  the  necessary  street  improve- 
ments involved  are  treated  later.  Chapter  12.     It  suffices  here  to 
note  that  the  city  may  derive  great  advantage  from  a  compara- 
tively small  amount  of  improvement  work.    The  major  improve- 
ments 11,  the  City  Plan  have  been   so   thoroughly  covered    in    the 
Burnham  report  that  only  such  minor  and  relatively  inexpensive 
projects  are  here  contemplated  as  are  essential   to  the  prooer 
development  of  the  city  and  its  transit  system  in  the  near  future. 
Similarly,  definite  consideration  is  later  given,  in  the  location 
of  these  extensions,  to  improved  car  routing  and  distribution  of 
service.     Particularly  may  be  mentioned  the  necessities  of  so- 
called     cross-town     lines,     making     possible     inter-communication 
between  various  local  centers,  of  Which  there  are  many  in  San 
Irancisco.     (See  Chapter  7.)  ^ 

In  fixing  upon  needed  extensions  all  of  the  suggestions  of  im- 
provement clubs  and  commercial  organizations  have  been  ana- 
lyzed, and  while  many  of  them  have  been  found  impracticable 
owing  to  existing  physical  obstructions,  mostly  excessive  grades 

fT'sc/  ^'^  Tr^y  warranted,  and  are  induded  herein.' 

1-ig.  8  shows  most  of  the  more  feasible  extensions  suggested  Of 
particular  vahie  may  be  mentioned  the  Merchants'  Association 
report,  submitted  in  1907.  otiauon 

It  is  of  interest  to  note,  in  this  connection,  that  of  all  the  ex- 
tensions shown  therein  (some,  I  understand,  were  practical 
agreed  to  by  the  United  Railroads),  there  ha;e  only 'been  con 

ZZll  r  .?"'a  ' T"  °"  ^""^"^  S'--^^'-  ^''"'h  Avenue,  Fulton 
Street,  Cortland  Avenue,  and  through  Visitacion  Valley,  and  that 

rl«  ,  "''*^".^;°"^  °[.^^«"t  years  have  been  financed  through 
the  assistance,  either  directly  or  indirectly,  of  the  properfv 
owners  benefited  thereby;  also,  that  there  have  been  »«'TaS 
extensions  whatever  built  under  franchises  granted  sinee  the  last 
charter  amendments  took  effect. 

'All  of  these  extensions  are  indicated  on  relief  mans    Pi.    10  .   j   c 
hs  cd  in  detail  in  Tables   10  and   12   (AnoenHilJ  S=?!-c  i*'  "  ""^  Franlisptece  and  are 
private    systems    accr.lins    to    the    coiKM^on    ,1^.^       u"^,  ¥  '°    ""''^'='''    municipal    and 
Tables    16  and    17    (AppeSdix)    list  Z   operat.nB   Jm.ti  recommended.       Similarly 

the    Exposition,    both    iith    at^d    without    tunje^?       Th.    ""=«*«='•>'   '•>■■  Proper    service  to 
summarized   in    Table  9    (Appendix)  "'"'"'='*•       The    approximate    costs    involved    are 


I 


42 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Transportation  facilities  to  the  Panama-Pacific  Exposition  are 
dealt  with  in  the  succeeding  section,  and  therein  are  recommended 
for  immediate  construction  such  transit  lines  as  will  best  co- 
ordinate with  this  greater  system. 

CONCLUSIONS  AND  RECOMMENDATIONS 

1.  A  study  of  the  relative  growth  of  population,  operated 
trackage  and  riding  habit  indicates  that  the  principal  traction 
system  in  its  extension  program  is  at  least  six  years  behind  the 
average  rate  established  by  the  Company  from  1900  to  1905,  which 
was  6 1  miles  of  single  track  per  year.  During  the  preceding 
decade  an  even  higher  rate  was  maintained — 8^  miles  per  year. 
Furthermore,  extensions  are  by  no  means  keeping  pace  with  the 
growth  in  population,  and  only  about  8  miles  more  track  is  now 
being  operated  than  in  1905. 

2.  The  apparent  needs  of  the  immediate  future,  determined 
independently  of  the  above  facts,  require  the  construction  of  about 
72  miles  of  single  track,  94%  of  which  is  under  municipal  juris- 
diction ;  and  by  far  the  greater  proportion  of  this  mileage  is  to  be 
regarded  as  simply  completing  a  delayed  program. 

3.  Upon  the  completion  of  the  above  construction,  five  years 
hence  at  the  most,  a  second  construction  program  should  be 
entered  upon  involving  about  50  miles  of  single  track,  which  may 
possibly  be  warranted  within  the  present  decade. 

4.  After  this  period  further  extension  work  should  be  steadily 
carried  out  as  indicated,  both  in  the  outlying  districts  and 
within  the  city  proper,  solidifying  and  perfecting  the  present 
system.  Inasmuch  as  San  Francsco  is  hardly  ha'If  developed, 
there  remains  much  to  be  accomplished  before  a  so-called  satura- 
tion point  shall  have  been  reached,  to  justify  retrenchment  in 
extensions.  This  schedule  of  extensions  does  not  include  the 
necessary  rehabilitation  of  the  California  Street  line  from  Sixth 
Avenue  to  Cliff  Avenue,  which  is  now  operating  without  a  fran- 
chise. 

5.  This  work  will  call  for  an  approximate  expenditure  of  about 
$6,000,000  in  track  and  equipment  within  the  next  five  years, 
and  $11,000,000  for  all  the  extension  work  indicated  herein,  exclu- 
sive of  all  special  street  improvement  work,  such  as  regrades, 
tunnels,  etc.,  and  exclusive  of  all  rapid  transit  undertakings,  ex- 
cept the  Twin  Peaks  tunnel  project  already  recommended. 

6.  At  a  very  conservative  estimate  the  investment  in  physi- 
cal property  should  increase  at  the  rate  of  $3.00  per  $1.00  earned 
per  year,  and  possibly  at  a  higher  rate.    As  the  earnings  for  the 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


43 


, 


, 


UNtnED  SYSTEM 

(  NOf«  coMPtTirrvt ) 

PROPOStO  DCTCNSIONS 


FIGURE   9 —RECOMMENDED    EXTENSIONS    FOR   UNIFIED    SYSTEM. 

Supplementing  the  detailed  relief  map  (Frontispiece)  on  which  all  pres- 
ent lines  are  indicated,  together  with  the  distribution  of  population.  This  dia- 
gram shows  in  skeleton  form  the  general  location  of  extensions  essential  to  a 
complete  transit  system  unified  with  respect  to  operation — that  is,  providing 
patrons  with  the  most  direct  transit  and  most  convenient  transfer  facilities, 
irrespective  of  ownership.  The  program  of  extensions  indicated  represents  the 
minimum  mileage  and  investment.  With  competing  systems  extending 
throughout  the  entire  city,  the  mileage  of  extensions  necessary  to  accomplish 
the  same  degree  of  service  would  be  considerably  greater  than  here  indicated. 
The  legend  subdivides  this  extension  program  into  (1)  Immediate;  (2)  Five 
years;  (3)  Ultimate.  Should  contour  streets  be  later  developed,  modifications 
of  this  program  would  naturally  result.  Such  tunnels  as  have  already  been 
recommended  are  here  included  as  a  fundamental  part  of  the  improved  tran- 
sit plan. 

future  are  conservatively  estimated  as  doubling  in  from  fourteen  to 
eighteen  years,  this  means  that  within  the  next  decade  probably 
$18,000,000  will  have  to  be  invested  in  extensions,  additions  and 
betterments  to  the  transportation  facilities  of  San  Francisco. 

7.  A  large  proportion  of  these  extensions  must  be  operated 
as  part  of  the  private  system  having  no  possible  connection  with 
the  municipal  lines,  present  or  contemplated.  But  if  these  various 
outlying  fragments  were  built  by  the  city,  some  form  of  contract 
should  be  entered  into  to  guarantee  through  service  during  the 
life  of  the  trunk  line  franchise. 


It 

It . 
p  . 


»! 


»l 


44 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


8.  As  the  maximum  benefit  from  service  will  be  derived 
from  extensions  nearest  the  business  center  or  into  comparatively 
thickly  settled  suburbs,  these  should  receive  first  consideration, 
prior  to  lines  into  thinly  settled  districts. 

9.  Certain  development  lines,  however,  are  so  clearly  de- 
sirable and  have  such  a  certain  future,  that  these  might  well  take 
precedence  over  those  development  lines  which  are  more  or  less 
speculative  in  final  results. 

10  For  track  in  the  outlying  districts,  a  lighter  and  less 
expensive  type  of  construction  may  be  used  which  will  serve 
amply  for  some  years  to  come  until  the  upbuilding  of  those  dis- 
tricts requires  rehabilitation  with  heavier  track  construction. 

11.  Single  track  construction,  with  turn-outs,  will  be  justi- 
fiable in  the  case  of  some  extensions  into  very  thinly  settled 
districts.  This,  together  with  the  lighter  construction  employed, 
will  so  reduce  the  relative  investment  as  to  make  it  possible  to 
serve  a  much  greater  territory  than  if  standard  construction  were 
used  throughout.  But  such  single-track  lines,  if  of  reasonably  per- 
manent construction,  especially  as  regards  the  substructure,  should 
be  laid  at  the  side  of  the  street,  so  as  to  be  in  position  when  the  line 
is  double-tracked  and  rerailed. 

12.  Extension  lines  should  in  general  be  so  located  as  to 
best  serve  as  feeders  to  future  rapid  transit  trunk  lines,  and  have 
been  so  considered  here.  This  particularly  applies  to  districts 
now  requiring  the  longer  rides  in  transit  from  the  business  center. 

13.  In  outlying  territory,  where  the  streets  and  topography 
permit,  a  spacing  between  adjacent  lines  should  be  adopted  which 
will  divide  the  undeveloped  territory  with  reasonable  equality 
of  service,  as  herein  indicated.  In  other  words,  parallel  lines 
should  not  be  located  nearer  than  three  or  four  blocks  apart,  un- 
less through  exceptionally  dense  settlements.  Otherwise  consid- 
erable duplication  will  occur,  as  in  the  case  of  the  upper  Richmond 
district. 

14.  Several  districts  in  San  Francisco  can  never  be  ade- 
quately served  except  by  the  contour  plan  of  street  subdivision, 
as  for  example,  University  Mound  and  Larsen  Heights,  or  the 
Sunset,  Twin  Peaks,  and  San  Miguel  slopes.  If  a  method  could 
be  devised,  a  re-subdivision  in  many  of  these  cases  would  un- 
doubtedly be  warranted,  in  order  to  secure  the  development  de- 
sired. 

15.  A  number  of  the  extensions  herein  named  lie  partly  or 
wholly  outside  of  the  jurisdiction  of  the  city,  as,  for  example,  the 
Belt  line  around  the  waterfront,  and  the  Presidio  line.     Special 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


45 


means  must  therefore  be  found  for  the  financing  of  these  extensions, 
particularly  the  Belt  line.  But  until  the  project  is  financed, 
arrangements  should  be  made  whereby  The  Embarcadero  will  be 
kept  open  for  the  building  of  such  a  service  line  next  to  the  dock 
wall  line. 

16.  The  Van  Ness  Avenue  line  is  largely  a  matter  of  munic- 
ipal policy.  Without  tunnels  it  will  unquestionably  be  needed,  as 
it  will  become  of  great  strategic  importance  in  the  event  of  failure 
to  reach  a  resettlement  of  existing  difficulties,  when  the  organiza- 
tion of  a  complete  competitive  municipal  system  will  be  the  prin- 
cipal means  of  relief. 

17.  It  is  probable  that  a  number  of  the  extensions  recom- 
mended, especially  those  not  in  a  direct  line  of  through  traffic, 
may  be  better  handled  for  the  present  by  means  of  a  shuttle  sennce 
rather  than  to  attempt  through  service  to  the  downtown  dis- 
trict. On  such  lines,  smaller  car  equipment  would  be  permissible, 
such  as  would  not  be  of  sufficient  capacity  to  warrant  operating 
through  the  business  district.  And  as  shuttle  cars  can  be  readily 
operated  on  a  definite  schedule  through  the  outlying  districts,  much 
better  service  results  from  transfer  to  a  trunk  line  of  frequent 
headway  than  to  attempt  a  through  service  that  w?ll  very  likely 
be  irregular  at  times,  due  to  delays  on  the  trunk  line.  Passengers 
then  always  have  the  opportunity  of  transferring  to  and  from  the 
first  trunk  line  car  passing. 

18.  Only  one  cable  line  extension  is  recommended,  on  Diamond 
Street,  and  this  is  unavoidable  as  it  is  now  the  most  feasible  way 
to  reach  the  southern  slopes  of  Noe  Valley,  unless  a  resubdivision 
of  all  the  surrounding  slopes  with  contour  streets  is  put  into  eflFect. 

19.  In  view  of  the  completion  of  the  Mission  Viaduct  an 
additional  viaduct  from  Holly  Street  across  the  Islais  Creek  basin 
into  University  Mound  district  is  not  considered  as  of  such  pressing 
necessity  for  some  years  to  come  as  the  other  extension  projects 
herein  outlined. 

20.  The  opening  of  Berry  Street  and  the  improvement  of 
Division  Street  as  a  continuation  of  Fourteenth  for  cross-town 
connection  will  become  advisable  in  the  very  near  future;  also  the 
utilization  of  Potrero  and  San  Bruno  Avenues  as  a  low-level  outlet 
from  the  district  south  of  Market  down  the  Peninsula. 

21.  The  early  improvement  of  Bernal  Cut  for  handling 
through  traffic  from  the  converging  thoroughfares  is  extremely 
important,  and  special  plans  have  been  made  therefor. 

22.  A  comparatively  easy  grade  along  Church  Street  has 
been  devised  by  means  of  a  short  diversion  at  Mission  Park  and  a 


'  / 


46  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

tunnel  one  block  in  leng^th,  which  line  reaches  the  heavily-settled 
Noe  Valley  district,  now  requiring  additional  service  perhaps 
more  than  any  other  district  in  the  city.  This  project  is  developed 
in  detail  in  Chapter  12. 

In  conclusion,  it  is  necessary  to  draw  attention  to  the  serious 
fact,  with  which  the  City  is  confronted,  that  capital  must  he  found 
to  build  these  extensions.  The  municipality,  of  course,  has  a  free 
hand  in  this  contemplated  use  of  its  streets;  but  many  of  the 
extensions  are  of  such  a  fragmentary  character  that  it  is  a  grave 
question  whether  it  should  undertake,  under  present  conditions, 
a  capital  burden  of  this  nature.  In  approximate  figures  the  fol- 
lowing program  of  extension  is  to  be  undertaken : 

Miles  Costt 

Immediate 72  $5,730,000 

After  5  years 48  3,820,000 

Ultimate    21  1,710,000 

Total   141  $11,260,000 

The  detailed  routes  to  be  established  over  these  various  exten- 
sions and  the  necessity  therefor  are  developed  in  full  in  Chap- 
ter 7— Rerouting  and  Service  Re-distribution.  Similarly,  street  im- 
provement work  necessary  for  the  construction  of  these  exten- 
sions will  be  analyzed  in  Chapter  12,  Street  Improvements. 

This  extension  program  does  not  contain  possible  future  lines 
and  extensions  along  contour  streets  that  may  be  developed  from 
resubdivision  of  hillside  tracts  now  inaccessible  because  of  pro- 
hibitive grades  resulting  from  the  rectilinear  plan  of  subdivision. 
Unquestionably,  such  resubdivision  will  develop  desirable  addi- 
tions to  this  program,  and  possibly  some  changes. 

Inasmuch  as  the  electors  have  expressed  themselves  (even 
though  by  a  very  small  majority)  against  the  execution  of  a  plan 
of  action  such  as  contemplated  in  Charter  Amendment  No.  34, 
it  is  now  incumbent  upon  the  city: 

1st.  To  finance,  by  local  assessment  or  bond  issue,  all  or  a 
large  part  of  the  extensions  herein  called  for,  and  secure  the  right 
of  exchange  of  its  own  cars  with  the  connecting  United  Rail- 
roads lines  (involving  an  adjustment  of  wage  scales)  ;  or 

2nd.  To  build  the  roadbed  only,  and  grant  private  operating 
rights  there-over  on  a  rental  basis;  or 

3rd.  To  secure  private  capital  to  finance  these  extensions, 
under  present  charter  conditions  with  the  right  of  through  serv- 
ice. 

ilncluding  only   roadbed,  overhead  cars  and  power  converting  equipment;  power  pur- 
chased. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


47 


<* 


Ml 


FIGURE    10— EXTENSIONS    FOR    COMPETITIVE    MUNICIPAL    SYSTEM. 

Incorporating  such  extensions  as  will  enable  the  City  to  develop  territory 
at  present  largely  unserved,  and  eventually  a  complete  system  operating  in 
direct  competition  with  the  present  private  system.  Herein  the  City  is  given 
the  preference  of  unoccupied  streets,  and  a  few  lines  are  included  which 
parallel  those  of  the  present  system  in  order  to  reach  competitive  territory. 
Much  is  dependent  upon  the  validity  of  the  five-block  law,  permitting  the  shar- 
ing of  city  streets  by  independent  companies.  The  possible  extensions  avail- 
able to  private  companies  under  this  competitive  plan  are  comparatively 
negligible.  All  these  lines  are  detailed  as  to  location,  grades  and  routes  in 
the  report. 


INTENTIONAL  SECOND  EXPOSURE 


46 


SAN  FRANCISCO  TRANSPORTATION   FACILITIES 


DEXELOPMENT  OF  TRANSIT  SYSTEM 


47 


iniincl  one  block  in  len.i;lli.  wliicli  line  readies  llic  heavily-settled 
\(ie  \  alley  district,  now  reciuirin.n  additional  service  perhaps 
more  than  any  other  district  in  the  city.  This  jiroject  is  developed 
in  detail  in  Chapter  12. 

In  conclnsion,  it  is  necessary  to  draw  attention  to  the  serious 
fact,  with  which  the  City  is  confronted,  that  capital  must  lye  found 
to  build  these  extensions.  The  nuinici])ality,  of  course,  has  a  free 
hand  in  this  contemplated  use  of  its  streets;  but  many  of  the 
extensi<ins  are  of  such  a  fra.5:::mentary  character  that  it  is  a  ^rave 
(|uestion  whether  it  should  undertake,  under  i)resent  conditions, 
a  ca])ital  burden  of  this  nature.  In  aj^proximate  fii^ures  the  fol- 
lowing^ program  of  extension  is  to  be  undertaken: 

Miles  Costv 

1  mmediate 72  J?.=i.;30.000 

After  5  vears 48  3.820.000 

Ultimate    21  1.710.000 


Total    141 


$ll,2r>0.000 


The  detailed  routes  lo  be  established  over  these  various  exten 
sions   and   the  necessity   therefor  are   develoi>ed   in    full    in    (  hap- 
ter  7— Rerouting;-  and  .Service  Re-distribution.     Similarly,  street  im- 
provement   work  necessary   for  the  construction  of  these  exten- 
sions will  be  analyzed  in  Chapter  12.  Street  Improvements. 

This  extension  program  does  not  contain  possible  futmv  lines 
and  extensions  alon.^-  contour  streets  that  may  be  developed  from 
resubdivision  of  hillside  tracts  now  inaccessible  because  of  pro- 
hibitive ji^rades  rcsultino-  from  the  rectilinear  plan  of  subdivision 
Cncpiestionably,  such  resubdivision  will  develop  desirable  addi- 
tions to  this  pro.ijram,  and  possibly  some  chanjjes. 

Tnasnuich  as  the  electors  have  expressed  themselves  feven 
thou.q-h  by  a  very  small  majority)  ap^ainst  the  execution  of  a  plan 
of  action  such  as  contemplated  in  Charter  Amendment  Xo.  34. 
it   is  now  incumbent  upon  the  city: 

1st.  To  finance,  by  local  assessment  nr  bond  issue,  all  or  a 
larg-e  i^art  of  the  extensions  herein  called  for.  and  sectn-e  the  rijL;ht 
of  exchan.cre  of  its  own  cars  with  the  connect inj^  Cnited  Rail- 
roads lines  ( involvino-  an  adjustment  of  wai;e  scales)  ;  or 

2n(l.  To  build  the  roadbed  only,  and  liiant  private  operating 
rijrhts  there-over  on  a  rental  basis:  or 

3rd.  To  secure  private  capital  to  finance  these  extensions, 
under  i)resent  charter  conditions  with  the  ris^ht  of  throup^h  serv- 
ice. 

vlnrlnHiiin   nnlv    iu;i(ll)r.l.    ..xcrlir.Ki   c;n-    an.l   power   ronverlinK   e(iuipnioiH ;    |io\ver   pur 
.  Ii;isr»l. 


f 


c» 


FKIlkK    10— KXTKXSIOXS    TOU    C  OMPKTITIN  K    MUXTCIPAL    SYS  I  KM. 

hicorporatiiij^  ^ncli  (.'xtcnsions  a>  will  enabk^  the  City  to  develop  territory 
at  present  largely  unserved,  and  cirntually  a  comt^lctc  system  of^cratini^  in 
direct  competition  with  the  present  private  system.  Herein  the  City  is  given 
the  preference  of  unoccupied  streets,  and  a  few  lines  are  included  which 
parallel  those  of  the  present  system  in  order  to  reach  competitive  territory. 
Much  is  dependent  upon  the  validity  of  the  five-hlock  law.  permitting  the  shar- 
11154  of  city  streets  by  indei)endent  conii)anies.  The  possible  extensions  avail- 
.'d)le  to  private  companies  under  tins  competitive  plan  are  comparatively 
ne<;li«;ibk'.  All  the>e  lines  are  detailed  as  to  location.  «j;r«i<le<  and  routes  in 
ihf  report. 


> 


48 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


In  Tables  10,  12,  and  13  and  Figs.  10  and  11  the  unified  plan 
originally  proposed  is  segregated  into  its  component  parts  for  the 
purpose  of  indicating  the  real  magnitude  and  legal  perplexities 
of  the  problem,  which  the  city  is  facing  in  establishing  a 
compctit'iTC  municipal  system.  In  such  a  plan  it  is  evident  that 
duplication  of  investment  and  service  will  be  inevitable,  and  the 
validity  of  the  five-block  law  must  be  established. 

The  time  has  uozc  arrived  for  the  City  of  San  Francisco  to 
establish  a  definite  transit  policy:  either  to  undertake  a  prolonged 
zvarfare  of  competition  zcith  established  lines,  or  else  to  accept 
a  reasonable  compromise  and  subdivision  of  territory  served  between 
the  municipal  and  private  systems  until  such  time  as  it  is  able  to 
assume  the  financial  burden  of  the  entire  transit  system. 


CABLC    L.>^<C5 

ttlCTH.C  i.'t>l» 

0        OOC    lOK  iOK  •30C   i:3C  '' 


FIGURE  ll-FIVE-RLOCK  JOINT  TRACKAGE  STUDY. 
Diagrammatic  map  indicating  the  extent  of  possible  utilization  of  existing 
five-block  sections  of  streets  where  the  municipality  is  enabled  to  share  with 
the  present  private  lines  in  the  obtaining  of  routing  and  termmal  privileges 
under  the  "five-block"  law.  Some  of  these  sections  are  used  in  the  Municipal 
System   Plan,   Figure   10. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


49 


II.    TRANSPORTATION  FACILITIES  FOR  PANAMA- 
PACIFIC  EXPOSITION  AT  HARBOR  VIEW 

In  Chapter  10  recommendations  are  made  for  tunnels  into 
Harbor  View,  and  the  discussion  herein  of  transit  plans  is  there- 
fore presented  from  two  standpoints : 

(a)  With  tunnels ; 

(b)  Without  tunnels, 

in  order  to  make  it  perfectly  clear  that  the  tunnel  propositions  as 
recommended  are  not  impracticable  and  unnecessary,  but  on  the 
other  hand  are  the  only  means  of  providing  convenient  access  to 
Harbor  View,  and  therefore  essential  to  the  financial  success  of  the 
Exposition. 

CONCLUSIONS  AND  RECOMMENDATIONS 

1.  With  the  present  available  transit  facilities  to  Harbor  View, 
only  one  important  line — Polk  Street— approaches  reasonably 
near  the  Exposition;  this  terminal  only  reaching  the  concessions, 
being  5,300  feet  from  the  main  court  and  10,500  feet  from  the  drill 
grounds.  The  remaining  lines  are  now  so  restricted  in  capacity 
that  they  may  be  almost  neglected  as  an  important  factor  in 
Exposition  transportation,  as  the  overload  capacity  is  too  lim- 
ited or  the  walking  distances  too  great.* 

2.  It  is  estimated  that  there  will  be  20  days  of  heavy  travel 
in  which  the  attendance  will  exceed  100,000  persons,  and  where- 
in the  traction  lines  will  be  called  upon  to  handle  from  25,000 

to  50,000  persons  per  hour— 3  hours  being  allowed  for  transpor- 
tation in  one  direction. 

3.  The  proportionate  distribution  of  traffic  to  the  Exposition 
site  is  estimated  to  be  as  follows : 

Main  Exposition  entrance  40% 

Concessions  entrance   20% 

Water  front 30% 

Presidio  Reservation 10% 

However,  on  days  of  special  field  events  in  the  drill  grounds,  the 
last  named  portion  delivered  to  the  Presidio  would  probably  be 
increased  to  20%  at  least.   It  is  assumed  that  ample  storage  and 

•However,  it  is  understood  that  an  adequate  intramural  system  of  transportation 
by  motor-busses  will  be  provided  within  the  grounds  to  supplement  outside  transporta- 
tion for  those  willing  to  pay  the  extra  fare;  also,  that  a  motor-bus  line  will  be  operated 
to  the  Exposition  gates  from  various  parts  of  the  city. 


!l 


50 


i 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


FIGURE   12— EXISTING   LINES  TO  HARBOR   VIEW. 

Indicating  their  limited  capacity  as  at  present  operated  and  the  serious 
difficulty  of  reaching  the  Exposition  grounds  >yithout  excessive  walking. 
These  lines  are  also  shown  in  the  contour  map,  Fig.  13. 


f» 


< ) 


f 


r> 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


51 


reservoir  loading  capacity  will  be  provided  at  each  of  these  ter- 
minals proportioned  to  the  volume  of  traffic  handled. 

4.  The  maximum  safe  carrying  capacity  of  present  lines  reach- 
ing the  Exposition  is  only  about  37%  of  that  necessary  for  the 
days  of  heaviest  traffic,  or  60%  for  days  of  medium  traffic,  and 
although  sufficient  as  a  total  for  the  268  days  of  normal  traffic, 
a  large  proportion  of  the  passengers  cannot  be  delivered  where 
desired — that  is,  to  the  Exposition  proper. 

5.  The  Polk  Street  line  may  be  regarded  as  especially  use- 
ful in  serving  the  concessions,  particularly  during  the  evenings, 
but  is  not  in  any  sense  available  for  serving  the  main  entrances, 
owing  to  the  excessive  walking  distances. 

6.  Whatever  additional  lines  are  constructed  should  be  so 
laid  out  as  to  be  of  maximum  usefulness  as  a  part  of  the  traction 
system  after  the  close  of  the  Exposition,  otherwise  the  duplica- 
tion of  investment  will  be  unwarranted. 

7.  With  no  tunnels  available  there  will  be  required  double 
track  electric  lines  of  standard  construction  on  Columbus  and 
Bay  Streets,  The  Embarcadero,  Van  Ness  Avenue,  Franklin- 
Broadway-Gough  Streets,  and  Chestnut  Street,  with  a  low-level 
diversion  of  the  Union  Street  line  via  Steiner  and  Greenwich 
Streets,  in  addition  to  the  hill-top  service.  This  results  in  a 
duplication  of  investment  in  trackage  on  Franklin  Street,  Van 
Ness  Avenue  and  Polk  Street  respectively,  which  would  other- 
wise be  unwarranted  for  the  needs  of  the  near  future.  More- 
over, a  complete  interchange  of  traffic  between  private  and  mu- 
nicipal lines  will  be  necessary  to  secure  sufficient  flexibility  in 
routing. 

8.  The  Franklin-Broadway-Gough  line  cannot  be  regarded 
as  desirable  because  of  an  unavoidable  grade  of  12.4%,  but  the 
line  could  be  operated  if  necessary. 

With  the  Franklin  Street  line  eliminated  and  no  provision 
for  a  loop  terminal  within  the  Exposition  at  the  water  front,  the 
Exposition  traffic  cannot  be  handled  adequately  without  one  or 
more  tunnels,  as  the  congestion  of  cars  and  vehicles  at  the  two 
principal  entrances  remaining  would  practically  nullify  the  rapid 
operation  necessary  to  realize  the  full  capacity  of  the  tributary 
lines. 

9.  The  Fort  Mason  tunnel  will  not  only  be  useful  for  freight 
handling  prior  to  and  after  the  Exposition,  but  is  also  excep- 
tionally well  located  for  passenger  delivery  to  a  loop  terminal 
on  the  water  front  of  the  Exposition  site,  and  after  the  Expo- 
sition   will   provide   an    important    level   thoroughfare   to   Har- 


\ 


52 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


bor  View  for  cars  and  vehicles  during  the  day,  and  freight  dur- 
ing the  night.  However,  before  the  tunnel  is  built  the  present 
legal  encumbrances  to  Beach  Street  should  be  entirely  removed. 

10.  The  Fillmore  Street  tunnel,  of  the  three  proposed  tunnel 
entrances  to  Harbor  View,  will  undoubtedly  facilitate  bulk  pas- 
senger movement  to  the  maximum  extent  by  delivering  promptly 
at  the  main  Exposition  entrance,  with  minimum  interference 
with  other  lines.  And  this  tunnel  will  be  equally  well  located 
after  the  close  of  the  Exposition,  as  the  only  available  low-level 
route  to  Harbor  View  from  the  Mission,  having  a  controlling  grade 
of  but  2.5%. 

11.  The  Broadzvay  tunnel  will  afford  an  effective  entrance 
to  Harbor  View  from  the  down  town  district.  Supplementing 
as  it  does  the  Stockton  Street  tunnel  by  avoiding  the  detour 
otherwise  necessary,  the  Broadway  tunnel  provides  a  much 
greater  flexibility  in  routing  of  cars,  consequently  decreasing 
congestion  due  to  their  distribution  over  various  available  streets 
west  of  the  Larkin  Street  portal. 

12.  The  entire  capacity  of  the  Harbor  View  lines,  present 
and  proposed,  has  been  considered  as  available  for  Exposition 
traffic,  but  it  must  not  be  forgotten  that  the  normal  business 
traffic  of  these  lines  must  be  handled  in  addition  thereto.  How- 
ever, as  the  Exposition  traffic  will  presumably  occur  during 
non-rush  hours  of  city  traffic  and  in  an  opposite  direction,  the 
interference  of  these  two  classes  of  service  will  not  be  so  severe; 
but  some  increase  in  equipment  will  undoubtedly  have  to  be 
reckoned  with. 

13.  Owing  to  an  unavoidable  obstruction  in  Chestnut  Street 
east  of  Fillmore,  which  prevents  the  widening  of  this  main 
entrance  thoroughfare  to  the  Exposition  at  this  point,  ample 
provision  for  the  storage  of  automobiles  and  the  regulation  of 
their  movements  must  be  made.  With  auto  storage  along  Chest- 
nut Street  from  Van  Ness  Avenue  to  Webster  Street,  much 
interference  with  passenger  travel  at  the  westerly  terminus  will 
be  avoided;  but  this  might  well  be  supplemented  by  a  pay  stor- 
age close  to  the  main  entrance  to  the  Exposition  and  on  some 
lateral  street  not  occupied  by  street  cars,  such  as  Scott  or  Pierce 
Streets. 

14.  In  view  of  the  demand  for  parking  Van  Ness  Avenue,  a 
design  has  been  prepared  for  accommodating  therewith  a  double 
track  electric  line  with  ornamental  center  pole  electroliers  which 
would  combine  utility  and  attractiveness,  at  the  same  time  leav- 
ing an  ample  roadway  width  of  30  feet  on  either  side  without 


V 


# 


u 


/fl 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


53 


reducing  the  present  sidewalk  widths.  (Plate  18.)  However, 
Van  Ness  Avenue  need  not  be  considered  as  necessary  for  street 
railway  use  if  the  tunnel  program  is  carried  through. 

15.  It  is  to  be  regretted  that  so  much  valuable  time  has 
elapsed  in  the  execution  of  the  tunnel  program.  And  it  must  be 
apparent  that  should  continued  obstructions  arise  to  prevent  or 
delay  the  commencement  of  actual  construction,  the  comple- 
tion of  the  work  within  the  short  period  intervening  before  the 
opening  of  the  Exposition  will  become  a  physical  impossibility. 
From  the  large  tunnel  traffic  now  contemplated,  the  adjacent 
property  will  receive  the  maximum  benefit  for  many  years  to 
come.  It  is  therefore  a  matter  of  most  urgent  necessity  to  adopt 
measures  securing  immediate  action ;  otherwise  surface  lines  will 
have  to  be  depended  upon  entirely  for  Exposition  service. 

Finally,  it-  must  be  apparent  that  under  present  franchise  con- 
ditions stipulated  by  the  Charter,  no  private  capital  may  be 
expected  to  participate  largely  in  any  of  the  extensions  outlined 
herein,  however  necessary.  It  is,  therefore,  essential  that  the 
municipality  prepare  itself  to  shoulder  the  entire  financial  bur- 
den of  the  railway  extensions  proposed  herein,  or  similar  ones. 


GENERAL  DISCUSSION 

Available  Transit  Facilities,  Harbor  View  exists  today  as 
a  bottom  land  ten  or  twelve  blocks  in  width  and  fourteen  blocks 
in  length,  excluding  the  Presidio  Reservation,  or  perhaps  double 
this  area  including  the  Presidio,  the  bottom  lands  extending  from 
Van  Ness  Avenue  nearly  to  Fort  Point,  or  practically  in  a  line 
with  Tenth  Avenue  (Fig.  13).  It  is  completely  shut  in  upon 
the  south  and  west  by  Pacific  Heights  and  the  succeeding  ranges 
of  hills  and  the  Presidio  Hills,  with  the  single  exception  of  one 
important  boulevard — Van  Ness  Avenue — which,  however,  has 
a  maximum  grade  of  from  9  to  10  per  cent  on  the  slopes  approach- 
ing the  saddle  between  Nob  Hill  and  Lafayette  Square.  The 
ascending  grades  of  this  entire  enclosing  range  are  entirely  too 
steep  for  normal  surface  traction,  running  as  high  as  25  to  30 
per  cent,  except  for  a  winding  entrance  through  the  Presidio 
Reservation  with  a  maximum  grade  of  10  per  cent.  To  the  east 
the  Harbor  View  bottom  lands  adjoin  the  level  tract  known  as 
North  Beach,  with  a  fairly  easy  approach  grade  over  the  saddle 
between  Fort  Mason  and  Russian  Hill.  It  is  therefore  clear  that 
the  only  avenues  of  entrance  to  Harbor  View  for  surface  trac- 
tion lines  are  as  follows : 


54 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


tf ! 


oo 

V90 


FIGURE    13— CONTOUR   MAP  OF   HARIIOR    VIEW   DISTRICT. 

Outlining  Panama- Pacific  Exposition  grounds,  and  the  natural  avenues 
of  approach  as  determined  by  the  surrounding  contours,  with  all  practicable 
service  lines  and  terminals,  irrespective  of  ownership.  The  locations  of  pro- 
posed tunnels  as  recommended,  emphasize  the  additional  entrance  facilities  to 
Harbor  View  resulting  therefrom.  Distances  from  center  of  main  court  in- 
dicated by  mile  circles. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


55 


1st — Northerly,  across  the  Van  Ness  Avenue  saddle,  or  adjacent 
streets. 

2d — Westerly,  across  the  Bay  Street  saddle. 

3d — By  contour  route  through  the  Presidio,  entering  in  the 
vicinity  of  Presidio  Heights. 

4th — By  ferry. 

Unlimited  access  is,  of  course,  possible  to  Harbor  View  by 
Ferry,  but  the  maximum  utility  for  such  an  entrance  would  be 
available  for  transbay  passengers  only,  and  not  for  San  Fran- 
ciscans, who  would  then  be  obliged  to  go  to  the  present  Ferry 
and  transfer  by  boat  to  Harbor  View.  While  this  would  be  attrac- 
tive in  some  respects,  it  is  inconceivable  that  it  would  become 
an  avenue  of  transportation  which  would  be  used  extensively 
and  considered  as  convenient  as  surface  car  lines  reaching  Har- 
bor View  directly  from  various  parts  of  the  City,  even  if  the 
extra  fare  that  would  be  charged  were  neglected.  In  the  latest 
Exposition  plan,  ferry  slips  are  provided  for  at  the  foot  of  Web- 
ster Street. 

Existing  surface  car  transportation  to  Harbor  View  is  lim- 
ited at  present  to  four  lines,  listed  in  the  order  of  their  importance 
and  carrying  capacity,  as  follows : 

/.  Polk  Street  Line,  now  terminating  at  Lombard  Street, 
but  capable  of  being  extended  as  far  as  Bay  Street  under  the 
same  franchise  conditions  as  the  main  line,  when  the  regrading 
of  Polk  Street,  now  under  way,  has  been  carried  out.  This  Bay 
Street  terminus  will  not  reach  directly  any  portion  of  the  Fair 
grounds.  On  the  other  hand,  it  is  5,300  feet  from  the  center 
of  the  Exposition  tract,  and  10,500  feet  from  the  center  of  the 
drill  grounds.  Moreover,  there  is  no  entrance  provided  opposite 
Bay  Street,  the  nearest  being  the  concessions  entrance  at  Fran- 
cisco Street,  which  would  require  a  walk  of  approximately  3,200 
feet  through  the  concessions  to  reach  the  nearest  entrance  to 
the  main  Exposition  tract.  Such  a  line  ending  in  a  main  thor- 
oughfare would  provide  for  the  development  of  no  terminal 
storage  capacity  other  than  a  double  cross-over,  which  would 
permit  only  about  half  the  capacity  of  the  tracks  to  be  utilized. 

2.  Union  Street  Line,  which  reverts  to  the  control  of  the 
City  in  1913  by  virtue  of  the  expiration  of  the  franchise.  This 
line  reaches  the  Exposition  proper  via  Baker  Street,  and  also 
via  the  extension  into  the  Presidio.  However,  as  now  operated, 
it  serves  no  useful  purpose  for  direct  transportation  from  other 
parts  of  the  City  except  the  Ferry.  Although  transfers  between 
Union  Street  and  the  United  Railroads  lines  are  now  in  force, 


tmmmmmmmmmm 


56  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

BION  J.  ARNOLD 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


57 


FIGURE    14-PROFILE   OF   PRESIDIO   AND    FERRIES    (UNION    STREET)    LINE. 


Showing  the  severe  grades  encountered  (nearly  H7c),  and  the  consequent 
impossibiHty  of  using  it  as  an  important  feeder.  Comparison  with  prohle 
of  East  Madison  Street  line,  Seattle,  Washmgton.  A  special  type  of  car  is 
recommended  for  this  and  similar  lines. 


these  transfer  facilities  will  presumably  expire  when  the  line  is 
taken  over  by  the  City  in  1913.  The  Union  Street  line  is  further- 
more operated  under  the  handicap  of  excessive  grades,  as  shown 
by  the  accompanying  profile  (Fig.  14),  in  which  the  grades  are 
indicated.  There  are  three  blocks  on  the  Hne  13.6%,  13.6%  and 
13.8%  respectively,  which  represents  the  worst  operating 
condition  in  the  city  from  the  standpoint  of  heavy  electric  transit 
with  normal  equipment.  Moreover,  a  diversion  of  four  blocks  from 
the  original  route  was  necessary  at  the  time  the  line  was  electrified, 
in  order  to  avoid  the  excessive  grade  of  18.9%  in  Union  Street. 

On  the  western  section  of  the  Union  Street  line  the  heavy 
grades  may  be  avoided  by  locating  a  new  low-level  route  via 
Steiner  and  Greenwich  Streets,  connecting  at  Baker  Street  with 
the  existing  Presidio  line.  This  need  not  result  in  any  dimi- 
nution of  the  present  hill  top  service,  but  if  this  divergence  were 
constructed  the  capacity  of  the  Union  Street  line  in  Harbor 
View,  in  connection  with  any  of  the  Van  Ness  valley  or  Broad- 
way tunnel  lines,  would  be  greatly  increased,  and  would  offer 
the  only  means  of  reaching  the  western  portion  of  the  Exposition 
site;  for  standard  double  track  equipment  could  then  be  oper- 
ated thereon  within  two  blocks  of  the  main  Exposition  entrance, 
and  directly  into  the  Presidio. 

Possible  extensions  from  the  Presidio  terminal  of  the  Union 
Street  Hne  are  shown  in  Fig.  13.  The  westerly  extension  as  far 
as  the  new  location  of  the  barracks  may  be  considered  as  an  imme- 
diate necessity,  and  a  further  extension  to  the  Fort  Point  terminus 
would  provide  an  attractive  scenic  line,  for  which  there  seems  to 
be  much  demand.  The  southerly  connections  to  Presidio  Avenue 
and  Cherry  Street  are  not  so  necessary,  except  that  a  convenient 
entrance  to  Harbor  View  from  the  Presidio  Heights  and  Rich- 
mond would  thus  be  afforded. 

J.  Hyde  Street  Cable  Line.  This  line  reaches  the  center  of 
the  city  effectively,  but  is  of  limited  capacity  and  terminates  at 
North  Point  Street,  three  blocks  from  the  concessions  district, 
being  6,250  feet  from  the  center  of  the  Exposition  and  11,450  feet 
from  the  center  of  the  drill  grounds. 

4,  Fillmore  Street  Balanced  Cable  Way.  Except  for  the 
excessive  grade,  this  would  constitute  a  most  direct  entrance  from 
the  city  to  the  Exposition  proper.  However,  two  blocks  of 
approximately  25%  grade  operate  to  reduce  its  capacity  to  an 
inconsiderable  point,  due  to  the  delay  and  inconvenience  necessi- 
tated by  the  use  of  a  balanced  cable  way  on  the  northern  slopes. 


hli\ 


58 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Estimated  Traffic*  The  Panama-Pacific  Exposition  will  open 
February  20th  and  close  December  4th.  1915.  a  period  of  288  days, 
including  Sundays.  It  is  estimated  that  the  average  attendance, 
including  heavy  and  light  days,  will  approximate  30.000  persons 
per  day,  this  average  being  based  upon  the  ratio  between  attend- 
ance and  district  population  which  has  developed  from  experience 
with  previous  expositions  held  in  this  country. 

Within  this  period  there  will  be  two  special  days  in  which  the 
maximum  traffic  will  presumably  be  encountered,  and  every 
means  of  transportation  impressed  into  service  to  its  utmost 
capacity,  viz.,  ''San  Francisco  Day"  and  "Admission  Day."  On 
these  days  it  is  anticipated  that  at  least  250,000  people  will  be  in 
attendance,  of  which  it  is  estimated  that  two-thirds,  or  167,000,  will 
be  handled  by  the  street  railways  and  other  vehicles;  one-third,  or 
83,000  people,  being  delivered  by  water.  (This  is  approximately 
the  same  amount  of  traffic  as  is  at  present  handled  per  day  by 
the  transbay  ferry  service  to  and  from  San  Francisco  by  the  two 
l)rincipal  suburban  systems.) 

In  addition,  it  is  estimated  that  there  will  be  seven  days  with 
attendance  of  150,000  or  over,  and  eleven  days  of  100,000  or  over. 
The  average  attendance  for  the  remaining  268  days  will  be  about 
21,000  per  day. 

The  daily  and  hourly  fluctuation  of  Exposition  attendance  dur- 
ing a  normal  week,  based  upon  previous  experience,  is  consider- 
able, and  as  near  as  can  be  estimated  from  available  data. 
excluding  nHitcr-hornc  trafHc,  the  surface  transportation  facilities 
of  San  Francisco  will  be  called  upon  to  handle  a  maximum  traffic 
during  these  heavy  week  day  periods  of  ^0,000  passengers'^  per 
hour,  excluding  the  two  special  days  of  maximum  attendance  above 
noted.  In  this  connection  it  is  reported  that  maximum  exposition 
attendance  per  day  has  been  recorded  as  follows: 

Philadelphia,  1876 275,000 

Chicago,  1893 760,000 

St.  Louis,  1904 405,000 

Seattle,  1909 200,000 

Assuming  arbitrarily  one-third  of  the  traffic  to  be  water-borne, 
the  income  from  an  average  daily  attendance  of  30,000  would  be 
$2,000  a  day,  or  $576,000  for  the  entire  period.  The  water-borne 
traffic,  on  a  basis  of  a  10-cent  fare,  would  then  derive  practically 

•  Based    upon    information    obtained    from    the    Exposition   officials.  .  .  .     ».       .      j 

t  Should  later  developments  indicate  that  this  maximum  is  somewhat  high  the  head- 
way of  tributary  lines  may  be  reduced  proportionately.  But  practically  the  same  track- 
age will  be  required  unless  the  maximum  demand  falls  below  38.000  per  hour  or  there- 
abouts. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


59 


the  same  total  daily  income  from  the  Exposition  traffic  that  the 
street  railways  would  derive  from  the  remaining  two-thirds  on  a 
5-cent  fare  basis  (assuming  adequate  transfer  privileges). f 

These  figures  do  not  consider  traffic  carried  by  automobiles 
and  motor  busses,  for  the  reason  that  the  volume  of  traffic  car- 
ried by  private  machines  would  be  inconsiderable,  and  that  of 
public  conveyances  would  probably  also  be  limited  because  of  the 
higher  fare  charged.  However,  if  adequate  street  railway  facili- 
ties are  not  available,  motor  busses  will  have  to  be  relied  upon 
for  a  considerable  share  of  land  traffic. 

Development  of  Additional  Facilities 

Thoroughfares,  In  the  planning  of  new  car  lines  and  esti- 
mating their  capacity,  it  is  useless  to  figure  upon  the  absolute  maxi- 
mum capacity  of  a  street  railway  line  along  a  level  thoroughfare 
and  unencumbered  by  vehicle  traffic.  The  City  of  San  Francisco 
must  face  a  two-fold  problem  of  its  grades  and  its  narrow  streets, 
for  all  of  the  streets  in  the  50-vara  district  and  Western  Addi- 
tion which  lead  to  the  Exposition  grounds  are  too  narrow,  with 
the  present  width  of  sidewalks,  to  provide  for  tn'o  lines  of  vehicles 
between  the  curb  and  the  street  car — with  one  exception.  Van 
Ness  Avenue — although  some  progress  has  been  made  toward 
reducing  the  width  of  the  sidewalks  on  important  streets  such 
as  Polk  Street  and  Sutter  Street.  And  inasmuch  as  any  attempt 
to  select  low-grade  routes  for  street  railway  lines  will  also  result 
in  the  selection  of  these  same  routes  for  Exposition  vehicle  traffic, 
it  is  evident  that  the  existing  thoroughfares  available  will  be 
crowded  to  their  utmost,  and  maximum  schedule  speed  will  be 
impossible  to  maintain. 

Safety  Factor.  The  safety  of  passengers,  especially  under 
heavy  traffic  conditions,  dictates  that  some  limit  be  placed  upon 
car  operation  on  heavy  grades,  and  in  this  respect  a  fixed 
assumption  has  been  made,  viz.,  that  on  grades  of  more  than  8%, 
more  than  one  car  will  not  be  allowed  between  successive  street 
plateaus.  This  limitation  will  evidently  reduce  the  capacity  of 
the  line,  but  it  is  considered  essential  under  the  abnormal  con- 
ditions attending  Exposition  service,  and  it  is,  in  fact,  the  stand- 
ard which  the  United  Railroads  at  present  endeavors  to  work  to 
in  its  hill  lines.  And  it  is  further  assumed  that  on  grades  up  to 
8%  or  10%,  power  will  be  applied  with  full  parallel  position  on 
the  controller,  and  possibly  full  parallel  may  have  to  be  resorted 

tif  adequate  service  by  water  is  not  to  be  available,  as  later  developments  indicate, 
then  every  facility  for  distribution  from  the  Ferry  must  be  provided,  especially  the  Broad- 
way and   Ft.   Mason  tunnels  and  The  Embarcadero. 


'  l9 


■■;  i.-tKmmim'mmmm 


60 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


to  on  still  steeper  grades,  in  order  to  increase  the  capacity  of 
the  line,  which  would  necessitate  equipment  having  ample  motive 
power. 

The  effect  of  grades  upon  average  schedule  speed  under  speci- 
fied conditions  of  running  will  be  apparent  from  the  fact  that 
a  decrease  in  grade  of  from  10%  to  4%  will  result  in  an  mcrease 
of  schedule  speed  of  over  25%  with  the  same  equipment.  Withm 
these  reasonable  grade  limitations,  it  is  found  that,  neglecting 
the  increased  power  consumption,  which  cannot  be  avoided,  the 
above  safety  factor  of  one  car  per  block  will  not  introduce  an 
excessive  element  of  delay  in  the  schedule  by  reason  of  the  fact 
that  the  spacing  of  cars  under  this  arrangement  results  prac- 
tically in  the  same  headway  as  corresponds  to  maximum  capacity 
operating  on  the  level.  Thus,  with  a  schedule  speed  of  8  miles 
per  hour,  the  elapsed  time  in  running  one  block  is  from  29  to  41 
seconds,  according  to  the  length  of  the  block.  Therefore,  this 
represents    the    minimum   headway   permissible   along  the   entire 

route. 

Headway.  A  study  of  minimum  headway,  i.  c,  maximum  line 
capacity,  shows  that  only  under  relatively  low  schedule  speed 
can  the  maximum  number  of  cars  be  passed  by  a  given  point. 
This  minimum  headway  exclusive  of  vehicle  traffic  obstruction, 
is  about  22  seconds,  or  approximately  163  cars  per  hour  (as  com- 
pared to  127  cars  per  hour  now  on  Market  Street),  but  the  result- 
ing schedule  speed  would  be  so  low  as  to  be  impracticable.  This 
means  that  it  is  not  possible  to  utilize  a  surface  railway  track 
to  its  full  capacity  if  rapid  transit  is  desired. 

On  the  level  it  is  probable  that  a  30-second  headway  will  be  the 
lowest  limit  that  can  be  maintained  with  the  high  average  speed 
desired,  especially  in  view  of  the  probable  traffic  obstruction.  This 
figure  has  been  used  in  capacity  estimates. 

Carrying  Capacity.  The  permissible  carrying  capacity  of 
a  standard  44-seat  car  is  purely  a  matter  of  judgment  and  liber- 
ality. It  is  a  fact,  however,  that  expensive  equipment  would  not 
be  warranted  for  handling  occasional  maximum  loads,  and  for 
such  traffic  as  the  Exposition  offers,  a  somewhat  higher  loading 
might  be  permissible  than  for  regular  urban  traffic.  This  capac- 
ity, which  provides  for  127%  excess  or  standing  load,  has  been 
taken  as  100  persons  for  basic  estimates,  representing  a  compro- 
mise between  normal  and  emergency  maximum  for  the  various 
types  of  double-truck  cars.t       On  the  Fillmore  and  Union  Street 

'      -This  assignment  of   100  persons  per  car   refers  to  the   averaRC  load   during   th?  hour. 
Individual  ca?sTould  unquesVionablv  carry   higher  loads,  especially  at  transfer  poinrts. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


61 


3MJLCS 


ei  MILES 


e  MILLS 


FIGURE    IS  —UNIFIED    TRACKAGE    PLAN    (WITHOUT    TUNNELS.) 

Showing  individual  lines  recommended  using  various  avenues  of  entrance, 
with  available  transfer  lines.  This  map  indicates  all  possible  transit  devel- 
opments without  the  use  of  tunnels.  Both  private  and  municipal  lines  are 
represented,  with  the  net  capacity  of  each  throat  and  terminal,  all  based  upon 
the  estimated  traffic  demand  of  50,000  people  per  hour. 


62 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


li 


it ' 

Hi 


hill  lines,  lighter  equipment  would  be  used,  so  that  a  carrying 
capacity  on  these  lines  of  60  persons  is  assumed. 

On  the  cable  lines,  the  capacity  is  further  limited  by  the  per- 
missible loading  of  the  cable,  and  a  headway  much  closer  than 
2  minutes,  or  30  cars  per  hour,  probably  could  not  be  safely 
figured  on. 

Line  Capacity  Without  Tunnels.  For  the  present  system, 
and  assuming  the  above  unit  capacities,  the  total  possibilities  of 
transportation  by  surface  car  lines  reaching  Harbor  View  directly 
under  present  conditions  are  18,300  passengers  per  hour.*  This 
might  be  exceeded  under  the  heaviest  traffic  conditions,  but  not 
without  serious  inconvenience  and  increased  danger  on  the  hill 
lines.    This  capacity  is  but  37%  of  the  estimated  requirements. 

The  estimated  capacity  of  the  proposed  system  zvithout  tun- 
nels, shown  on  Fig.  15,  is  54,300  per  hour.  But  this  includes  lines 
on  both  Franklin  Street  and  Van  Ness  Avenue,  also  on  The 
Embarcadero  and  Columbus  Avenue  via  North  Point  Street,  Van 
Ness  Avenue,  Beach  Street  and  thence  through  the  Fort  Mason 
Reservation,  communicating  with  the  Exposition  waterfront  ter- 
minal. 

For  Van  Ness  Avenue,  the  central  parking  plan  shown  in 
Plate  18  would  permit  the  use  of  either  permanent  or  temporary 
track  construction. 

Line  Capacity  With  Tunnels.  For  the  system  with  tun- 
nels, as  shown  in  Fig.  16,  the  estimated  capacity  is  also  54,300  per 
hour.**  But  with  the  tunnels  constructed,  no  new  line  on  Frank- 
lin Street  will  be  required  except  four  blocks  from  Union  Street 
to  the  Concessions  terminal  on  Chestnut  Street.  This  line  may  be 
removed  after  the  close  of  the  Exposition.  Likewise,  no  line  on 
Van  Ness  Avenue  will  be  required  except  three  blocks  from 
Broadway  to  Union  Street. 

Trailers.  On  the  comparatively  level  tunnel  routes,  trailers 
might  be  considered  to  increase  their  capacity.  In  this  case  the 
headway  per  ear  could  be  considerably  decreased.  However,  the 
use  of  trailers  would  be  at  variance  with  the  operating  standard 
established  in  San  Francisco,  and  consequently  their  use  has  not 
been  considered  in  the  capacity  estimates  herein.  For  hill  opera- 
tion no  trailer  should  be  permitted  without  motors  operated  from 
the  master  control  of  the  motor  car. 

Distributing  Trunk  Thoroughfares.  The  final  plan  of  the 
Exposition  grounds  shows  that  Chestnut  Street  and  Van  Ness 

•  Hyde  Street  must  be  omitted   from  this  computation  owing  to  the  excessive  walking 
distances  ^;^olv^«^d.  ^^^    ^^^^    ^^    ^^^    ^^^^    ^^^^^^    ^.^^     ^^.^   ^^^^j    ^^^^^.^^    ^„„,d    be    in- 

created  8%. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


63 


FIGURE   16— UNIFIED   TRACKAGE   PLAN    (WITH    TUNNELS.) 

Showing  individual  lines  using  various  avenues  of  entrance,  with  available 
transfer  facilities.  This  map  indicates  recommended  transit  assuming  the  use 
of  tunnels.  Note  improved  distribution  of  traffic.  Franklin  and  Van  Ness 
lines  are  here  eliminated,  as  they  are  unnecessary  with  tunnels  also. 


I 
I 


64 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Avenue  will  handle  the  great  majority  of  Exposition  traffic, 
owing  to  the  location  of  all  entrances  thereon,  with  the  exception 
of  trans-bay  traffic  and  that  entering  through  the  Presidio 
grounds.  Van  Ness  Avenue,  having  a  width  of  125  feet,  is 
fortunately  ample  for  the  accommodation  of  both  railways  and 
pleasure  vehicles ;  four  lines  of  automobiles  on  either  side  of  the 
centrally  located  railway  tracks  can  be  accommodated.  And  from 
Van  Ness  Avenue  several  east-west  distributing  streets  are 
available  by  way  of  which  various  parts  of  the  Exposition  grounds 
can  be  reached. 

Chestnut  Street,  however,  is  only  68  feet  9  inches  in  width, 
which  with  15-foot  sidewalks  gives  a  roadway  width  of  only  38 
feet  9  inches,  and  with  12-foot  sidewalks,  a  roadway  of  44  feet 
9  inches.  Inasmuch  as  the  present  standard  track  and  car  con- 
struction requires  a  total  over-all  width  of  20  feet  2>4  inches 
with  the  wider  cars,  or  18  feet  8  inches  for  the  narrower  Chicago 
standard,  it  follows  that  there  will  not  be  sufficient  room  for  the 
accommodation  of  tivo  lines  of  vehicle  traffic  on  either  side  of  the 
car  line,  unless  sidewalks  are  reduced  to  about  11  feet.  While 
Chestnut  Street  will  be  widened  for  auto  stands  from  Van  Ness 
Avenue  to  Fillmore  Street,  a  large  gas  holder  just  east  of  Fillmore 
Street  prevents  the  widening  of  the  roadway  at  this  point.  On 
account  of  this  constriction  at  one  of  the  important  Exposition 
entrances,  it  will  probably  be  necessary  to  establish  fixed  stopping 
points  on  Chestnut  Street  so  as  to  prevent  the  massing  of  cars 
and  passengers  at  this  throat.  Such  stops  are  indicated  on  the 
block  plan.  Fig  17,  herein. 

Terminals.  The  question  of  terminal  facilities  for  surface 
lines  is  one  of  the  greatest  importance,  for  without  proper  facili- 
ties the  available  capacity  of  the  tributary  lines  cannot  be  realized. 
Moreover,  if  passengers  cannot  be  delivered  directly  and  conven- 
iently into  the  Exposition  grounds,  the  adoption  of  other  means 
of  transportation  at  probably  higher  rates  of  fare  will  be  forced. 

The  final  layout  of  the  Exposition  plans  shows  entrances  as 
follows : 

(1)  Scott  Street  at  Chestnut — main  entrance  to  central  court. 

(2)  Fillmore  Street  at  Chestnut — first  lateral  distributing 
thoroughfare  entering  the  main  group  of  buildings. 

(3)  Francisco  Street  at  Van  Ness  Avenue— easterly  entrance 
to  concessions,  and  an  important  night  entrance. 

(4)  Presidio  entrance — terminus  of  the  present  Union  Street 
electric  line. 


. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


65 


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PBESIOIO. 


FIGURE   17— DETAIL  OF   EXPOSITION  TERMINALS   PLAN. 

Showing  entrances  and  terminal  studies.  Full  lines  represent  routes  best 
suited  for  effective  use  after  the  Exposition ;  dotted  lines  represent  those  de- 
signed for  handling  Exposition  traffic  only.  Recommended  stops  also  indi- 
cated. Note  the  obstruction  in  Chestnut  Street  caused  by  the  present  gas- 
holder at  Fillmore  Street.  All  these  terminals  are  very  necessary,  especially 
that  on  the  water  front. 


66 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


67 


(5)  Ferry  slips  at  the  foot  of  Webster  Street,  and  reaching 
directly  the  main  longitudinal  water  front  thoroughfare  leading 
west  to  the  drill  grounds. 

At  the  present  time  it  appears  that  Chestnut  Street  will  be 
forced  to  carry  the  great  majority  of  street  car  traffic  destined 
for  the  central  building  group,  for  the  Van  Ness  Avenue  entrance 
will  not  be  desirable  except  for  those  wishing  to  use  the  tortuous 
entrance  way  through  the  concessions.  And  without  suitable  res- 
ervoir terminals.  Chestnut  Street  would  be  unable  to  handle  the 
V  lume  of  traffic  anticipated.  A  surface  car  terminal  on  the 
Exposition  water  front  is,  therefore,  desirable  and  necessary. 

Available  Sites,  An  excellent  site  for  such  a  terminal  loop 
may  be  found  near  the  main  ferry  slips  at  the  foot  of  Webster 
Street,  as  indicated  in  Fig  17.  This,  however,  will  require  an 
entrance  from  Bay  Street  and  Van  Ness  Avenue,  across  Fort 
!^Iason  and  one  block  of  private  property  which  is  now  largely 
a  water  lot.*  This  leads  to  a  position  north  of  a  tract  which 
has  been  reserved  for  railroad  yards,  and  the  south  wing  of  the 
Ferry  Plaza  structure  at  this  point  could  then  be  effectively  util- 
ized for  street  railway  terminal  gates.  It  is  also  possible  that 
some  of  this  railroad  yard  trackage  could  be  utilized  as  reservoir 
capacity  for  surface  cars  at  times  of  unusual  demand. 

This  terminal  location  would  then  deliver  passengers  from 
the  most  important  lines  (other  than  those  using  the  Fillmore 
tunnel)  directly  into  the  North  Esplanade,  which  parallels  the 
water  front  for  the  entire  length  of  the  Exposition  grounds.  Inci- 
dentally, such  a  route  would  provide  much-needed  service  to  the 
Fort  Mason  Reservation  and  to  the  United  States  transport 
docks,  located  at  the  foot  of  Laguna  Street,  which  will  be  needed 
before  and  during  the  Exposition.  This  terminal  should  be  jointly 
available  for  all  surface  lines  approaching  the  Exposition  at  the 
northeast  corner,  including  Van  Ness  Avenue,  Polk  Street,  North 
Point  Street,  and  all  lines  running  through  Fort  Mason  tunnel. 

In  addition  to  the  above-mentioned  inside  loop  terminal,  there 
are  three  locations  along  Chestnut  Street  available  for  outside 
loops : 

(1)  Between  Franklin  and  Gough  Streets. 

(2)  Between  Steiner  and  Pierce  Streets. 

(3)  Between  Divisadero  and  Scott  Streets. 

The  first  may  be  effectively  utilized  as  the  entrance  to  the 
concessions  for  which  a  supplemental  entrance  is  contemplated 
in  addition  to  the  Van  Ness  Avenue  entrance. 

•  Or  Beach  Street,  from  Laguna  to  Buchanan,  might  be  used  for  this  purpose  without 
entering    private    property. 


The  third  terminal  site  at  Divisadero  is  an  excellent  location 
for  serving  the  main  bulk  of  the  traffic  at  the  principal  Exposi- 
tion entrance.  With  this  terminal,  one  at  Steiner  Street  would 
probably  be  unnecessary.  Although  a  separate  loop  would  be 
exceedingly  useful  as  a  terminal  for  the  Fillmore  tunnel  lines, 
the  fact  that  Lombard  Street  is  reserved  as  a  military  highway 
makes  the  Steiner  Street  site  unavailable. 

With  three  terminals,  traffic  will  probably  be  distributed  as 
follows : 

« 

(1)  Exposition  loop,  Fort  Mason,  15,000  per  hour,  maximum. 

(2)  Franklin  Street  loop,  10,000  per  hour,  maximum. 

(3)  Divisadero  Street  loop,  20,000  per  hour,  maximum. 

(4)  Presidio  terminal,  normal,  5,000  per  hour,  maximum. 
Presidio  terminal,  on  field  days,   10,000  per  hour,  maxi- 
mum. 

Distribution  of  Capacity.  With  the  above  distribution  of 
terminal  traffic,  the  probable  traffic  of  each  of  the  tributary  lines 
is  presented  in  the  appended  Table  15,  together  with  the  maxi- 
mum capacity  of  these  "feeder  lines"  that  could  be  realized  if  an 
unobstructed  entrance  could  be  found.  These  capacities  are  com- 
puted with  a  view  to  the  limitations  of  safety  and  power  pre- 
viously discussed. 

The  detailed  routes  which  ivill  be  necessary  to  provide  effective 
terminal  facilities  as  above  outlined  are  listed  in  the  Tables  i6  and 

Platform  Arrangement,  All  of  these  loop  terminals  may  be 
designed  with  surface  tracks  and  platforms,  but  to  properly  expe- 
dite unloading  and  loading,  separate  car  berths  should  be  pro- 
vided with  passenger  concourse  between — otherwise  on  days  of 
heavy  travel  serious  interference  in  passenger  flow  will  result. 
In  the  case  of  the  Divisadero  terminal,  where  five  loop  tracks 
may  be  necessary,  a  sub-concourse  from  Chestnut  Street  should 
be  built  leading  to  the  three  rear  tracks  directly,  without  neces- 
sitating the  crossing  of  the  two  front  tracks. 

It  will  also  be  desirable  to  install  prepayment  entrances  at 
these  platforms,  to  avoid  the  delay  of  loading  cars  in  the  usual 
manner.  Thus,  the  Divisadero  terminal  is  divided  into  separate 
platforms  for  the  use  of  United  Railroads  lines  and  for  the  Munici- 
pal lines,  respectively.  Separate  loops  may  similarly  be  used  at 
the  inside  Exposition  loop.  Or  if  a  proper  basis  of  accounting 
could  be  devised  by  means  of  registered  entries  to  the  respective 
lines,  a  common  prepayment  entrance  would  be  most  convenient 
and  efficient. 


68 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


i 


Track  Centers.  In  order  to  realize  the  maximum  capacity 
from  the  Exposition  surface  lines,  it  will  be  necessary  to  so  design 
track  and  special  work  that  cars  may  pass  on  curves  without 
mutual  obstruction  due  to  the  overhang  of  platform  or  fenders, 
otherwise  the  delays  due  to  traffic  obstruction  at  street  intersec- 
tions will  become  serious.  On  the  present  long-platform  cars,  the 
overhang  of  the  fenders  as  now  used  is  so  great  as  to  require 
wide  curve  separation,  but  clearance  on  curves  is  so  important 
that  if  necessary,  curbs  should  be  cut  back  to  avoid  the  overhang 
of  car  bodies  when  rounding  the  inside  curve.  And  on  these 
narrow  streets  of  the  Western  Addition  traffic  regulations  must 
be  rigidly  enforced  preventing  street  vehicles  from  standing  or 
passing  so  near  a  street  corner  as  to  come  within  the  range  of  the 
sweep  of  a  fender  or  platform. 

It  is  also  important  that  a  "devil  strip"  of  at  least  20  inches 
should  be  provided  between  cars,  owing  to  the  unavoidable  possi- 
bility of  pedestrians  being  caught  between  cars.  Where  the 
standard  Municipal  Railway  cars  only  are  to  be  operated,  which 
cars  are  8  feet  6  inches  in  width  over  all,  straight  double  track 
may  be  laid  with  centers  10  feet  2  inches  apart;  but  where  the 
present  wider  rolling  stock  of  the  United  Railroads  is  to  be  oper- 
ated the  tracks  must  be  laid  with  a  center  line  distance  of  11  feet 
Yz  inch,  in  order  to  provide  the  necessary  "devil  strip."  How- 
ever, if,  on  such  lines  of  common  usage,  all  cars  will  be  of  the 
narrower  standard  width  of  8  feet  6  inches,  the  narrower  track 
centers  should  be  laid,  thus  conserving  to  the  greatest  possible 
extent  the  remaining  roadway  and  sidewalk  widths. 

Franchise  Requirements,     In  order  to  carry  out  any  of  the 

improvements  herein  specified,  it  will  be  necessary  for  franchises 
to  be  granted  either  on  a  permanent  or  a  revocable  basis.  It  is 
probable  that  the  Chestnut  Street  lines  could  be  well  utilized  in 
the  future,  after  the  expiration  of  the  Exposition.  The  route 
across  Fort  Mason,  however,  is  only  granted  by  the  Government 
on  a  revocable  permit,  excepting  via  the  Fort  Mason  tunnel, 
which  would  be  of  permanent  utility.  Any  extensions  through 
the  Presidio  should  also  be  located  so  as  to  be  of  permanent 
value,  as  otherwise  the  investment  would  hardly  be  justified.  It 
is,  therefore,  clear  that  two  methods  are  open  to  the  City  for 
obtaining  these  service  extensions : 

(1)  To  build  municipal  lines,  and  grant  operating  rights  over 
them  to  the  United  Railroads  on  a  rental  basis : 

(2)  To  issue  permits  or  grant  some  form  of  indeterminate 
franchise  to  the  Corporation  for  those  lines  which  the  Municipality 
does  not  care  to  build. 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


69 


The  latter  plan  involves  for  the  Corporation  radical  changes 
in  its  operating  and  financial  organization,  owing  to  the  stringent 
Charter  provisions  now  regulating  extensions,  which  condition 
must  be  met  by  the  City  by  special  legislation. 

Ill— RAPID  TRANSIT  PLANS 

While  no  study  of  transit  facilities  would  be  complete  without 
some  estimate  of  the  needs  and  possibilities  of  rapid  transit  by 
subway  or  elevated,  it  is  believed  that  it  is  still  too  early  to  con- 
template the  building  of  a  comprehensive  subway  system  for 
San  Francisco,  owing  to  the  comparative  absence  of  very  long 
hauls,  and  especially  if  the  tunnel  and  other  transit  improve- 
ment projects  herein  discussed  are  carried  out.  These  projects 
will  very  likely  develop  in  the  following  chronological  order: 

1.  Car  and  traffic  tunnels  for  the  Western  Addition  as  already 
recommended. 

2.  Market  Street  extension  rapid  transit  tunnel  under  Twin 
Peaks  for  suburban  and  interurban  service  as  recommended. 

3.  Mission-Sunset  tunnel  from  Market  Street  extension  to 
Pope  Valley  and  upper  Sunset,  to  be  built  two-level  so  as  to  con- 
nect with  future  Market  Street  subways  as  recommended. 

4.  Electrification  of  present  railroad  outlet  through  the  Mis- 
sion for  both  city  and  suburban  rapid  transit  systems  (via  South- 
ern Pacific,  Ocean  Shore,  or  both). 

5.  Market  Street  subway  connecting  with  the  Twin  Peaks 
tunnel:  (a)  Southern  branch  through  the  Mission  connecting  into 
Bemal  Cut  with  the  suburban  electrification;  (b)  East  Richmond 
branch,  preferably  following  McAllister  Street  or  Golden  Gate 
Avenue  and  touching  the  Park. 

Additional  branches  will  then  follow  in  due  course — into  West 
Richmond  and  the  Western  Addition  by  Point  Lobos  Avenue  to 
the  west,  and  by  Divisadero  Street  to  the  north,  with  possibly 
a  downtown  cross-town  line  via  Third,  Kearny,  and  Columbus, 
through  Fort  Mason  tunnel  into  Harbor  View.  This  Richmond 
branch  can  reach  Point  Lobos  Avenue  from  Golden  Gate  Avenue 
by  a  diagonal,  deep-level  cut  across  what  is  now  Laurel  Hill 
Cemetery,  and  similar  use  may  possibly  be  made  of  Jefferson 
Square  and  Alamo  Square.  For  the  latter,  the  combined  traffic- 
transit  tunnel  as  designed  for  the  Mission-Sunset  tunnel  is  appro- 
priate.    (See  Figs.  66,  67  and  68.) 

Of  these  subways,  the  Market  Street  trunk  and  Mission 
branch  will  probably  become  the  first  necessity ;  and  if  the  City  de- 


70 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


71 


cides  to  build  the  Twin  Peaks  tunnel  now  as  far  as  Valen- 
cia Street,  the  remaining  subway  construction  will  undoubtedly 
be  hastened. 

• 

Elevated  Railways.  The  construction  of  an  elevated 
trunk  line  through  the  heart  of  the  business  district  at  this  stage 
of  transit  development  would  appear  to  be  exceedingly  question- 
able for  three  reasons :  (a)  The  imperative  necessity  of  rapid  tran- 
sit in  Market  street,  due  to  the  peculiar  street  layout ;  (b)  the 
inadvisability  of  obstructing  traffic  in  so  important  a  street  as 
Mission  by  elevated  posts;  and  (c)  the  decided  tendency  in  mod- 
ern rapid  transit  development  to  depart  from  elevated  construc- 
tion within  the  business  district  in  favor  of  subways,  owing  to 
the  avoidance  of  noise,  extra  climb,  and  inconvenience  to  abuttmg 

property. 

It  is  hardly  probable  for  some  years  to  come  that  Market 
Street  traffic  could  be  induced  much  further  south  than  Mission 
Street.  But  even  if  possible,  only  one  route  exists — Minna  Street, 
just  stouth  of  Mission— that  might  reasonably  be  developed  as  an 
elevated  entrance.  Minna  Street,  hardly  more  than  an  alley,  stops 
at  First  Street,  requiring  six  blocks  more  right-of-way  to  reach 
the  Ferry,  in  addition  to  further  acquisition  of  property  near  the 
"Hub."  This  route  would  be  of  maximum  usefulness  if  the  Twin 
Peaks  tunnel  is  built  no  further  than  Eureka  or  Castro  Streets, 
in  which  case  tunnel  cars  after  reaching  the  Market  Street  hump 
could  then  divert  into  McCoppin  Street  (which  descends  rapidly 
at  this  point)  crossing  overhead  at  Valencia  Street  and  extend- 
ing as  a  practically  level  connection  with  the  elevated  line  in 
Minna  Street.  As  this  street  is  only  35  to  40  feet  in  width,  the 
elevated  structure  would  have  to  span  the  street  from  curb  to 
curb ;  and  if  constructed  with  cushioned  roadbed,  the  objection- 
able noise  could  be  minimized,  although  the  light  in  all  abutting 
buildings  would  be  practically  cut  off. 

This  elevated  line  cannot,  therefore,  be  considered  as  in  any 
sense  a  solution  of  the  present  rapid  transit  problem  of  San  Fran- 
cisco, and  merely  provides  a  double-deck  street  entrance  to  the 
business  district  for  tunnel  lines.  Only  two  tracks  can  possibly 
be  accommodated,  and  the  line  will  become  practically  of  sec- 
ondary use  only  for  passenger  transportation  as  soon  as  the 
Market  Street  subway  is  constructed.  However,  it  might  be  used 
advantageously  for  light  freight  and  express  delivery  into  the 
upper  floors  of  the  abutting  buildings  provided  with  proper  trans- 
fer facilities.  As  this  phase  of  the  railway  business  is  now 
developing  rapidly  from  necessity  (as  in  Los  Angeles,  for  exam- 
ple), this  lends  perhaps  a  more  important  aspect  to  an  elevated 


railroad  in  Minna  Street  than  its  ultimate  value  for  passenger 
transit.  Until  a  comprehensive  subway  system  is  warranted,  which 
will  be  sooner  in  San  Francisco  than  in  most  cities,  the  surface 
traction  system  should  be  improved  and  perfected  to  the  maxi- 
mum possible  extent.  » 

Existing  Rights-of-way.  The  utilization  of  the  Southern 
Pacific  and  Ocean  Shore  Railroad  rights-of-way  for  suburban 
electric  service  is  directly  in  line  with  the  economic  policy  of 
maximum  use  of  idle  investment.  While  the  exact  basis  of  inter- 
change of  operating  rights  between  City  and  Company  is,  of  course, 
a  matter  for  negotiation,  both  these  low-level  rights-of-way  are  cap- 
able of  development  as  rapid  transit  trunk  lines,  from  which  out- 
lying sections  may  be  in  turn  developed  by  a  system  of  local  street 
railway  feeders.  Fortunately,  the  franchise  of  the  Ocean  Shore 
Railroad  specifically  encourages  this  development  (Ordinance  No. 
40,  New  Series),  and  those  of  the  Southern  Pacific  appear  to 
be' so  fragmentary  as  to  debar  it  from  using  the  old  Mission  en- 
trance through"  Bernal  Cut  and  Harrison  Street  without  the  City's 
consent.  This,  of  course,  is  no  cause  for  abandonment  or  confisca- 
tion ;  for  a  low-grade  entrance  developed  at  such  heavy  cost  becomes 
a  valuable  asset  to  the  City  by  joint  utilization  for  rapid  transit 
purposes. 

Both  the  Southern  Pacific  and  Ocean  Shore  rights-of-way 
reach  conveniently  a  territory  which  is  difficult,  if  not  impossible, 
to  serve  directly  by  surface  traction  lines ;  and  both  can  be  of  im- 
mediate use  in  connection  with  present  traction  developments.  If 
the  Southern  Pacific  line  is  given  over  entirely  to  electric  service, 
as  it  should  be,  this  will  be  much  superior  to  attempting  to  use  city 
streets  for  trunk  line  service— a  plan  which  is  already  meeting 
with  objection  in  trans-bay  cities. 

The  Ocean  Shore  line  conforms  well  to  the  plans  proposed 
herein  for  reaching  the  large  University  Mound  district.  But  for 
maximum  convenience  of  connection  with  a  line  on  Van  Ness 
Avenue,  this  thoroughfare  should  be  extended  to  Mission  and 
Twelfth  Streets— shown  in  Fig.  19— as  recommended. 

For  long-distance  train  service  down  the  Peninsula,  the  eventual 
electrification  of  the  Bay  Shore  tunnel  route  would  appear  to  be 
far  superior  than  by  attempting  to  develop  exclusively  for  this 
particular  traffic  the  old  Mission  right-of-way,  with  its  physical 
obstructions,  higher  grades,  and  circuitous  routes.  This  Mission 
route  therefore  becomes  of  maximum  present  usefulness  in  develop- 
ing the  immediate  suburbs,  as  in  the  case  of  the  Southern  Pacific 
and  Key  Route  lines  across  the  Bay.  _    _ 


f 


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72 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


On  the  other  hand,  the  Twin  Peaks  tunnel  forms  the  logical 
route  for  rapid  electric  train  service  to  the  near-lying  territory 
south  of  the  County  line.  And  as  this  tunnel  will  presumably  be 
open  to  private  transportation  lines  on  a  rental  basis,  it  is  possible 
that  it  will  become  a  factor  in  further  developing  those  western 
slopes  of  the  Peninsula  now  reached  only  by  the  Ocean  Shore,  but 
still  comparatively  inaccessible  for  resident  commuters  by  reason 
of  time  consumed  in  transit  and  difficult  terminal  entrance.  It 
thus  appears  that  by  general  readjustment  of  transportation  facili- 
ties, present  and  proposed,  a  much  more  logical  system  of  trunks  and 
feeders  may  be  worked  out,  which  will  at  least  double  the  present 
habitable  areas  lying  within  the  30-minute  time  zone  for  local  sub- 
urban service,  and  extend  it  perhaps  four  or  five  times  beyond  the 
present  limits  for  interurban  train  service,  as  exemplified  in  the 
trans-bay  electric  development. 

Bernal  Cut.      In  the  joint  development  of  Bernal  Cut  and 
Circular  Avenue,  the  elevation  or  depression  of  the  present  tracks 


I     to                 •• 
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FIGURE    18— BERNAL    CUT,    MAP    AND    PROFILE. 

This  detc.il  shows  three  alternative  methods  of  utilizing  Bernal  Cut  for 
rapid  transit  purposes— (a)  by  the  old  Southern  Pacific  right-of-way;  (b) 
by  an  elevated  connection  across  the  valley  in  San  Jose  Avenue,  and  (c) 
by  future  all-subway  alignment  connecting  with  a  future  Mission  Street 
subway  branch.  The  use  of  the  exaggerated  vertical  scale  emphasizes  the 
problem  of  securing  the  proper  alignment.  The  dotted  line  indicates  a  prac- 
ticable grade  separation  at  Randall  Street. 


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74  SAN    FRANCISCO   TRANSPORTATION    FACILITIES 

of  the  Southern  Pacific  Company  across  existing  transit  Hnes  of  the 
Mission    is   essential.     Either   is    practicable,   as   indicated   by   the 
profile  studies,  Fig.  18  (a),  (b).  But  much  depends  upon  the  future 
of  the  right-of-way  along  the  Harrison  Street  and  the  rc-locatwn 
of  the  present  railroad  passenger  terminal  as  briefly  discussed  herein. 
A  depressed  open  cut  across  the  Mission  would  be  desirable  to 
provide  direct  connection  at  sub-grade,  mth  a  future  subway  branch 
down  Mission  Street.    But  unless  the  Harrison  Street  right-of-way 
were  then  extended  northward  by  open  cut  to  this  new  terminal, 
this  advantage  somewhat  disappears.    On  the  other  hand,  if  this 
suburban  entrance  were  eventually  elevated  in  Harrison  and  con- 
necting streets  as  far  as  the  terminal,  elevation  across  the  Mission 
would  probably  be  most  advantageous,  especially  in  view  of  the 
fact  that  a  sub-grade  connection  with  the  Mission  Street  subway 
at  Twenty-fourth  Street  is  not  absolutely  essential,  for  a  more 
direct  route  into  the  Bernal  Cut  is  available  parallel  to  A  ission 
Street,  indicated  in  Fig.  18.     Either  a  short  tunnel  or  regrading  at 
Army  Street  will  be  necessary  if  a  depressed  track  across  the 
Mission  is  adopted ;  but  if  elevated,  no  street  improvements  will  be 

necessary. 

Studies  of  both  elevated  and  subway  connection  along  San 
Jose  Avenue  indicate  that  by  the  former  a  more  direct  connection 
from   Bernal   Cut  to  the   future   Mission  sub-am'   branch   can   be 
accomplished  by  some  regrading  in  the  vicinity  of  Randall  Street, 
which  however  will  be  necessary  in  any  case.     A  rather  high 
structure  in  San  Jose  Avenue  would  result.     And  as  the  use  of 
Mission  Street  from  Twenty-sixth  to  Randall  Streets  for  either  a 
surface    or    elevated    connection    is    practically    impossible    with 
complex    entrance    structures,   probably    the   best   plan    for   the 
present  would  be  to  use  the  Southern  Pacific  elevated  tracks  until 
such  time  as  the  more  direct  all-subway  alignment  becomes  war- 
ranted.    In  this  case  the  Mission  Street  bore  diverts  by  easy 
curve  to  Coleridge  Street,  crossing  Mission  Street  and  reaching 
Bernal  Cut  on  a  tangent  at  its  crest.     In  spite  of  this  detour, 
station  entrances  at  Army-Twenty-sixth,  at  IMission  Street  crossing, 
and  possibly  opposite  Twenty-ninth    and    Valencia  Streets,  would 
then  suffice  for  this  stretch  of  Mission  Street. 

Passenger  Terminal.  This  development  naturally  leads  to 
a  consideration  of  the  proper  terminal  location  for  all  of  this 
electric  train  service,  and  possibly  for  steam  service  from  the 
Peninsula.  The  westerly  trend  of  movement  of  the  retail  busi- 
ness center  indicates  that  the  Third  and  Townsend  station  will 
become,  in  the  future,  less  strategic  as  a  passenger  terminal  than 
now.    An  entirely  new  center  has  been  suggested  in  the  Burnham 


DEVELOPMENT  OF  TRANSIT  SYSTEM 


75 


, 


FIGURE   19— POSSIBLE  RELOCATION  OF  UNION   STATION 

This  tentative  location  for  the  site  of  a  Union  terminal  for  steam  lines, 
both  through  and  suburban,  results  from  recognition  of  the  fact  that  the 
business  center  is  rapidly  moving  westward.  This  site  is  not  only  nearer 
the  present  business  center  than  the  Third  and  Townsend  Streets  station, 
but  is  obviously  better  located  with  reference  to  transit  hnes  and  a  pos- 
sible elevated  connection  with  the  Twin  Peaks  tunnel.  The  advantages 
of  extending  Van  Ness  Avenue  to  Mission  and  Twelfth  Streets,  there  con- 
necting with  the  Ocean  Shore  Railroad,  are  obvious. 

plan  located  at  the  "Hub"  of  the  radial  streets  in  the  Mission.  W^ith 
the  construction  of  the  Twin  Peaks  tunnel,  an  interurban  ter- 
minal in  this  vicinity  would  undoubtedly  possess  advantages,  but 
for  railroad  commuter  traffic,  this  site  would  hardly  be  available 
because  of  (a)  the  distance  from  the  present  business  center,  and 
(b)  the  necessity  of  an  extra  fare. 

Although  it  is  not  a  direct  function  of  this  report  to  determine 
the  proper  location  for  a  steam  railroad  terminal,  a  study  of 
transit  needs  has  pointed  unmistakably  to  certain  desirable  de- 
velopments in  this  regard.  These  studies  indicate  that  the 
location  of  a  union  passenger  terminal,  Fig.  19,  in  Seventh  Street 
between  Howard  and  Mission  Streets  presents  many  attractive 
features  as  follows:  (a)  available  for  immediate  developments 
in  commuter  travel  via  Southern  Pacific  m^in  line,  Southern  Pacific 
Mission  branch.  Ocean  Shore,  and  possibly  a  Twin  Peaks  tunnel 
elevated  entrance;  (b)  nearer  the  present  business  center  than  the 
Third  and  Townsend  depot,  and  within  easy  walking  distance;  (c) 


76 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


t: 


■  I , 


will  be  close  to  the  center  of  the  business  district  in  the  not  distant 
future;  (d)  reasonably  convenient  to  Market  Street  without  causing 
undue  congestion  thereon  as  would  be  the  case  if  located  at  the 
Ferry;  (e)  accessible  by  car  lines  from  all  directions;  (f)  well 
adapted  to  elevation  of  tracks  leading  to  the  terminal,  as  a  direct 
extension  of  the  present  Seventh  Street  tracks. 

The  diagrammatic  plan,  Fig.  19,  points  out  the  relation  of  these 
several  factors.  While  the  building  has  been  indicated  as  facing 
on  Howard  and  Minna  Streets,  the  train  shed  and  interlocking 
floor  may  extend  further  to  the  south.  This  location  has  obvious 
advantages  in  the  event  an  elevated  road  in  Minna  Street  should 
become  unavoidable. 

Between  Howard  and  Mission  Streets,  a  14-ft.  rise  now  exists 
in  Seventh  Street.  The  upper  level  or  passenger  floor  could  then 
be  connected  with  Mission  Street  by  easy  grade  ramps  and  road- 
ways. With  Seventh  Street  extended  northerly  to  McAllister 
Street,  ample  thoroughfares  would  be  available  for  vehicles  to 
the  north  and  west  without  unduly  congesting  Market  Street 
traffic.  Finally,  if  such  a  terminal  location  were  adopted  the 
City's  needs  would  be  amply  served  until  later  developments 
necessitated  a  separate  interurban  terminal  at  Valencia  and 
Market  Streets  in  connection  with  the  subways  reaching  this 
strategic  transit  center. 


CHAPTER  4 

DEVELOPMENT  OF  PLAN  OF 
PROCEDURE 

Franchises,  Financing:,  and  Control  ' 
Interpretation  of  Resettlement  Franchise 

From  the  foregoing  chapters,  which  have  developed  the  major  transit 
necessities,  present  and  future,  of  this  community,  the  vital  need  of  some 
definite  plan  of  immediate  action  is  no  doubt  apparent.  This  concluding 
chapter  of  the  general  program.  Part  I,  is  therefore  devoted  to  suggesting 
wa^s  and  means  of  accomplishing  the  results  desired.  In  addition  to  mat- 
ters norv  l})ing  entirely  within  the  powers  of  the  Cit^,  there  is  outlined  a 
definite  common  ground  upon  which  Cit^  and  Company  can  negotiate  a 
reasonable  resettlement.  The  practical  operation  of  Charter  Amendment 
34  has  also  been  worked  out  for  the  future,  and  the  results  are  here  in- 
terpreted in  actual  values  based  upon  conservative  predictions.  Should 
faster  growth  develop,  the  results  desired  will  come  proportionately^  sooner. 
The  present  financial  status  of  both  Cit^  and  Company  are  found,  b^  an- 
alyses, to  practically  necessitate  some  form  of  indeterminate  resettlement.  Un- 
der the  plan  recommended,  the  property  is  automatically  recaptured  free  of 
cost  to  the  Cit^  within  a  reasonable  term  of  ^ears.  Thus,  effective  munic- 
ipal control  will  be  realized  without  diminution  of  service  or  growth. 


RECOMMENDED  PLAN  OF  PROCEDURE. 

1.  The  immediate  resubmission  of  Charter  Amendment  34  or 
an  equivalent  constructed  along  similar  lines.  It  should  be  simply 
an  enabling  act,  including  only  vital  and  necessary  safeguards  for 
the  future,  rather  than  being  detailed  in  matters  which  should  find 
place  only  in  specific  franchises,  viz. :  wage  scale  and  operating  con- 
ditions. 

2.  Resubmission  of  Public  Service  Commission  Amendment 
6,  or  an  equivalent,  with  provision  for  automatic  expansion  of 
the  Commission's  activities  to  ultimately  cover  all  utilities.  It 
should  be  absolutely  free  from  political  dictation  and  subject  to 
review  first  by  the  State  Railroad  Commission  so  long  as  this  com- 
mission retains  its  present  broad  powers,  and  lastly  by  the  Courts. 


- 


It    :j 


!i' 


I! 


78 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


3.  Resubmission  of  a  charter  amendment  permitting  the  City 
to  undertake  the  acquisition  and  construction  of  revenue  produc- 
ing utilities  outside  of  the  present  debt  limit,  so  that  the  policy 
of  the  City  expressed  in  the  present  Charter  may  be  fulfilled  by 
gradually  bringing  street  railways  under  municipal  control. 

4.  A  general  franchise  ordinance  should  be  formulated  ex- 
pressing the  policy  of  the  City  with  respect  to  both  new  and 
resettlement  franchises,  and  embodying  the  essential  elements 
herein  prescribed.  While  the  Commission  may  properly  act  in 
an  advisory  capacity,  determining  the  necessity  for  and  conditions  of 
franchises,  the  Board  of  Supervisors  should  retain  its  legislative 
functions  in  franchise  granting,  subject  to  the  will  of  the  people. 

5.  Preparations  for  and  negotiations  with  the  United  Rail- 
roads for  a  possible  resettlement  franchise,  in  order  that  a  clearer 
understanding  of  Charter  Amendment  34  may  be  had  by  all 
parties  concerned,  and  that  it  may  be  put  into  effect  immediately 
after  resubmission  and  ratification. 

6.  It  may  become  necessary  to  appraise  the  property  of  the 
United  Railroads  for  the  determination  of  a  basis  of  a  fair  return 
on  investment,  in  the  event  that  the  Company  finds  it  inexpedient 
to  reach  reasonable  conclusions  with  respect  to  investment  that 
may  be  recognized  with  propriety  by  the  City  in  a  possible  re- 
settlement. 

7.  Formulate  by  resolution  or  order  a  plan  for  the  guidance 
of  the  United  Railroads  in  the  execution  of  beneficial  improve- 
ments recommended  herein  with  respect  to  routing,  service  and 
equipment;  and  determine  in  connection  therewith  a  definite 
program  of  rehabilitation  and  the  accounting  methods  by  which 
expenditures  should  be  segregated  between  income  and  capital 
accounts. 

8.  Pending  the  creation  of  a  Public  Service  Commission, 
appoint  a  small  technical  staff  to  continue  traffic  counts,  inspect 
equipment,  analyze  operating  results,  and  submit  recommenda- 
tions and  reports  to  the  Public  Utilities  Committee  or  other 
designated  municipal  body  regarding  the  maintenance  of  proper 
service  and  the  requirements  therefor.  The  data  on  traffic  and 
income  recorded  herein  may  be  used  as  a  basis  for  reference  as 
to  past  performance  and  future  needs. 

9.  Clarify  the  franchise  situation  preliminary  to  a  possible 
resettlement  and  equalization  of  terms  and  conditions  by  deter- 
mining upon  a  policy  of  clearing  the  streets  of  all  unused  fran- 
chises with  possible  exchanges  in  minor  sections  of  present  fran- 
chises or  additions  thereto  which  may  be  necessary  to  carry  out 
evident  improvements  in  routing  indicated  herein. 


^ 


PLAN  OF  PROCEDURE 


79 


10.  Determine  the  City's  policy  as  to  railway  extensions  an4 
service  into  Harbor  View  and  to  the  municipal  system  in  general. 
At  the  present  time  a  plan  of  development  of  unserved  areas 
rather  than  of  direct  competition  is  recommended.  And  only  in 
the  event  of  the  Company's  failure  to  co-operate  in  any  reasonable 
plan  of  improvement  would  competition  be  justifiable. 

11.  It  is  essential  to  the  welfare  of  the  city  as  a  whole  that 
the  advantages  of  tunnels  be  more  generally  appreciated  than 
now,  and  their  construction  facilitated  with  as  little  delay  as 
possible  (particularly  before  the  Exposition  in  1915). 

12.  The  City  should  co-operate  with  the  State  Harbor  Com- 
mission in  formulating  ways  and  means  for  the  immediate  im- 
provement of  the  Ferry  terminal  facilities  in  order  to  realize  the 
benefits  contemplated  from  the  four-track  operating  plan  on 
lower  Market  Street.  For  the  success  of  the  latter  close  co-opera- 
tion will  also  be  required  between  the  inspectors  of  the  municipal 
and  private  lines  operating  on  Market  Street. 

13.  The  City  Plan  Commission  recently  provided  for  by 
charter  amendment  should  devise  ways  and  means  for  securing 
promptly  the  more  important  improvements  in  city  plan  herein 
suggested,  and  at  least  providing  for  their  eventual  fulfillment, 
even  if  not  now  possible. 

14.  Develop  Bernal  Cut  and  Circular  Avenue  jointly  with 
the  Southern  Pacific  railroad,  as  a  new  artery  of  travel  from  the 
Mission  for  rapid  transit,  surface  railway,  and  vehicle  transporta- 
tion ;  this  to  form  an  essential  requirement  of  a  regrant  of  fran- 
chise for  the  Valencia  branch. 

INTERPRETATION  OF  RESETTLEMENT  FRANCHISE 
PLAN    PROVIDED    FOR   IN    AMENDMENT    34 

Conditions  Confronting  City 

1.  By  reason  of  the  pressing  water  question,  the  purchasing 
power  of  the  City  is  entirely  inadequate  under  the  present  basis 
of  bonding  to  cover  a  possible  purchase  of  the  physical  property 
of  existing  street  railways. 

2.  The  City  has  established  the  nucleus  of  a  municipal  rail- 
way system,  but  has  not  the  bonding  power  to  extend  or  develop 
an  adequate  system  throughout  the  entire  city,  if  such  should  be 
deemed  desirable  or  necessary. 

3.  The  City  is  not  receiving  a  sufficient  share  in  income  from 
railway  operations  at  present  to  enable  it  to  carry  out  the  exten- 


80 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


'it 


sions  which  the  Company  has  not  carried  out.  This  income  now 
amounts  to  nearly  5%  of  which  the  City  gets  less  than  1%  while 
4%  goes  to  the  State. 

Conditions  Confronting  Company 

1.  Short-term  franchises.  In  17  years  approximately  two- 
thirds  of  the  mileage  will  expire,  leaving  only  outlying  fragments 
of  lines,  with  little  or  no  trunk  line  connection  to  the  business 
district. 

2.  Net  residual  income  (above  bond  interest  and  sinking 
fund  payments),  is  only  sufficient  for  dividends  on  the  first 
preferred,  and  possibly  a  small  future  return  on  the  preferred,  but 
none  on  the  common  stock. 

3.  The  future  earning  capacity  of  the  property  zvith  its  re- 
quired extensions  will  probably  fall  far  short  of  retiring  the  present 
unfunded  debts  at  maturities,  even  assuming  no  dividends  paid 
on  preferred  or  common  stock  and  no  curtailment  of  the  earning 
power  by  the  action  of  the  City  or  from  other  cause. 

4.  The  increasing  density  of  traffic  and  earnings  from  the 
present  system  should  be  offset  somewhat  by  the  continual  demand 
for  improved  service,  and  with  the  extensions  (if  made)  necessary 
to  realize  these  estimated  earnings,  there  will  probably  result  little 
or  no  future  decrease  in  operating  ratio. 

5.  Less  than  one-third  of  the  present  bonded  debt  (of 
U.  R.  R.  4's)  will  be  amortized  by  sinking  funds,  and  only  about 
one-sixth  of  the  underlying  Market  Street  Railway  5's  at  ma- 
turity. 

6.  Although  nearly  $10,000,000  U.  R.  R.  4%  bonds  are  re- 
served in  the  treasury  for  refunding  underlying  securities,  these 
are  unavailable  for  this  purpose  owing  to  prevailing  low  market 
values.  For  the  same  reason,  additional  stock  cannot  be  sold 
except  at  a  high  interest  return,  as  the  deed  of  trust  (U.  R,  R.  4's) 
under  which  the  original  financing  was  executed  prohibited  further 
stock  issues  below  par. 

7.  Further  refunding  by  $10,000,000  unissued  Market  Street 
Ry.  5*s  is  also  impracticable  on  account  of  increasing  discounts 
incurred  through  dilution  of  present  issues,  upon  which  the  sink- 
ing fund  is  very  limited. 

8.  The  San  Francisco  Electric  Railway's  plan  of  financing 
extensions  through  the  assistance  of  benefited  property  owners 
is  now  unavailable  on  account  of  Charter  provisions.  In  theory 
these  citizens   simply  carried  the   risk  of  a  first  mortgage  loan 


PLAN  OF  PROCEDURE 


81 


to  the  Company  at  par ;  in  practice,  they  were  forced  to  subscribe 
the  amount  of  a  heavy  bond  discount. 

9.  The  present  Charter  practically  prohibits  extensions  from 
an  operating  standpoint  alone,  and  does  not  take  into  consideration 
any  methods  of  financing  them. 

10.  Short-term  junior  mortgage  securities  might  be  issued 
for  immediate  needs,  or  further  preference  stock  imposed  if  ap- 
proved by  the  State  Railroad  Commission.  However,  both  methods 
would  result  in  high-rate  loans  and  delay  still  further  the  earning 
power  of  present  securities. 

Summarizing,  it  appears  that  the  property  can  hardly  "earn 
out"  by  1929;  its  sinking  fund  leaves  two-thirds  of  the  present 
debt  unfunded,  and  until  the  Charter  is  amended,  money  cannot 
be  raised  at  reasonable  rates  for  extensions  to  increase  its  earning 
power.    But  at  least  one  partial  remedy  exists: 

The  bondholders  may  refinance  U.  R.  R.  4's  by  5%  bonds, 
maintaining  the  same  sinking  fund,  thus  scaling  down  the 
U.  R.  R.  mortgage  debt  by  20%  or  about  $5,000,000,  and  so 
retiring  at  maturity  a  greater  proportion  of  the  total  debt.  This 
plan  would  probably  increase  the  market  value  to  at  least  85  under 
present  conditions  and  possibly  to  par  under  a  fair  resettlement 
ordinance,  and  provide  for  refunding  underlying  maturities 
on  a  5  to  6%  basis,  while  the  interest  charges  and  distribution 
of  income  would  remain  unchanged.  About  $20,000,000  unfunded 
debt,  however,  would  still  remain  at  the  last  maturity  in  1927. 

As  an  alternative,  the  stockholders  may  defer  or  curtail  divi- 
dends for  a  period  in  order  to  increase  the  sinking  fund  annuities, 
and  thereby  raise  the  market  value  of  U.  R.  R.  4's  to  a  more 
reasonable  figure  for  refunding  purposes.  The  stockholders  will 
then  eventually  derive  their  return  from  surplus  in  the  form  of 
residual  equities,  resulting  from  debt  amortized  at  maturity. 

Results— No  Resettlement.  The  accompanying  diagram. 
Fig.  20  shows  graphically  the  conditions  that  will  probably  obtain 
in  1929  if  no  resettlement  is  brought  about,  if  betterments  are 
added  only  at  the  minimum  possible  rate,  and  with  practically 
no  extensions  to  the  property.  On  the  assumption  that  the  Railroad 
Company  would  be  compelled  by  the  City  to  cease  operation  under 
all  franchises  which  then  expire,  the  earnings  would  drop  abruptly 
in  1929  to  practically  their  present  level;  and  investment  in 
operating  property  by  a  corresponding  amount  due  to  the  expira- 
tion of  the  Market  Street  Ry.  franchise  (line  not  shown  on  dia- 
gram). The  present  sinking  fund  requirements  will  probably  retire- 
$13,000,000  out  of  $40,000,000  now  outstanding,  leaving  $27,000,- 
000  unfunded  debt. 


82 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


However,  by  refinancing  of  U.  R.  R.  4's  to  5's,  the  present 
(1913)  bonded  debt  would  be  reduced  to  about  $33,650,000;  and 
with  present  sinking  fund  figured  upon  a  6%  basis  and  carried 
to  maturity  this  would  possibly  retire  as  much  as  $13,650,000 
out  of  a  total  of  $33,650,000  debt,  leaving  only  $20,000,000  un- 
funded in  1927  as  against  $27,000,000  with  4%  bonds.*  Evidently, 
in  view  of  the  possibilities  of  condemnation  by  the  City  of  the 
fixed  property  in  the  streets,  neither  plan  affords  the  necessary 
security  on  the  unfunded  investment,  although  the  proposed 
refinancing  increases  this  security  by  one-third. 

Resettlement  Plans.    In    order   to   interpret   the   provisions 
of  Charter  Amendment  34  in  concrete  terms,  a  number  of  profit- 
sharing  plans  have  been  worked  out  in  approximate  figures  show- 
ing the  possibilities  of  the  future.    These  are  all  based  upon  an 
indeterminate  franchise  of  20  years,  with  a  possible  extension  to 
40  years  if  the  City  does  not  then  elect  to  purchase.    All  elements 
of  initial  intangible  value  in  the  agreed  purchase  price  are  to  be 
decapitalized  by  a  sinking  fund  within  the  first  franchise  period 
out  of  the  Company's  share  in  earnings,  leaving  only  tangible 
property  to  be  purchased  by  the  City  at  its  then  depreciated  value. 
(These  decapitalized  values  to  include  depreciation  at  date  of  settle- 
ment as  well  as  all  depreciation  which  accrues  subsequent  to  the  end 
of  the  rehabilitation  period  represented  by  the  difference  between  the 
cost  of  producing  the  property  new  and  the  best  condition  in  which  it 
is  practicable  to  maintain  it.)  If  still  operating  the  property  during 
the  next  20  years,  the  Company  is  to  decapitalize  tangible  values  rep- 
resenting fixed  structures  in  the  streets  and  real  estate  actually  used 
and  useful  in  operating  the  road,  and  in  addition,  all  depreciation 
which  takes  place  in  all  new  property  added  after  the  expiration  of 
the  first  20-year  period  as  well  as  that  which  takes  place  after  that 
date  on  the  old  property  up  to  the  date  of  purchase  by  the  City.  This 
total  depreciation  will  be  the  difference  between  the  cost  of  the  prop- 
erty new  and  the  best  condition  in  which  it  is  practicable  to  maintain 
it,  all  of  which  will  amount  to  practically  half  of  the  investment.  Or- 
dinary operating  upkeep  of  the  property  consisting  of  minor  repairs 
is  to  be  treated  as  maintenance  and  all  shrinkage  in  values  through 
depreciation  or  inadequacy  is  to  be  provided  for  by  a  renewal  fund, 
both  maintenance  and  renewals  to  be  met  out  of  earnings,  so  that  the 
property  may  thus  be  maintained  permanently  in  good  operating 
condition  (75%  of  cost  new  or  thereabouts). 

The   accompanying  Table   56  shows   possible   methods   of   dis- 
tribution of  net  income  by  various  profit-sharing  plans,  ranging 

♦  Assuming  the  continued  purchase  and  holding  of  U.  «•  «•  4's  at  ma'-'^et  P'JF«'  y>«'i 
ing  6%  e^uFvalent  return.  Out  of  this  $13,650,000.  about  $1,550,000  must  be  discharged 
out  of  earnings. 


1902 


I910 


1920 


1950 


1940 


1950 


I ') 


FIGURE  20— FUTURE  DEBT  AND  EARNING  CAPACITY. 
Curves  indicating  the  probable  effect  of  franchise  expirations  after  1929, 
when  about  60%  of  the  earning  capacity  expires;  also  the  total  amount  of 
funded  debt  at  various  periods  and  the  immediate  effect  of  refinancing  U.  R. 
R.  4's  to  S%  bonds,  by  which  the  total  debt  may  be  reduced  by  $5,000,000. 
About  $20,000,000  debt  will  still  remain  unfunded  in  1929.  The  curve  of  mini- 
mum investment  assumes  just  sufficient  betterments  to  maintain  the  oper- 
ating integrity  of  the  property  while  the  maximum  investment  curve  is  based 
upon  a  normal  investment  ratio  of  $3.00  for  each  $1  increase  in  annual  earn- 
ings. 


ii 


84 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


from  the  practical  "Chicago  plan"  to  those  approaching  more  or 
less  the  ideal.     In  Plan  1  the  residual  net  income  is  prorated  in 
strict  accordance  with  the  present  actual  distribution  of  income 
between   Service,  Labor,   Company  and   City,   shown   in   Fig.  2L 
All  plans  presuppose  an  agreed  capital  valuation  of  the  property 
with  a  5%  return  thereon  practically  guaranteed  to  the  Company 
as  a  prior  claim  on  net  income ;  the  residual  net  income  in  excess 
of  this  return  to  be  distributed  between  the  various  participants 
in  the  profit-sharing  plan  proposed.     For  the  purposes  of  this 
analysis,  the  operating  expenses  including  maintenance,   renewals 
and  sinking  fund  for  decapitalizing  depreciation,  are  fixed  at  62%  of 
the  gross  receipts  excluding,  or  67%  including  taxes  and  licenses, 
with  3%  of  the  gross  receipts  reserved  for  amortization  during  the 
first  20  years  (based  upon  the  smaller  initial  intangible  value  or  4% 
upon  the  larger)  and  3%  during  the  succeeding  20  years.       This 

PROPORn0^4AL     OISTUIBUTION   OF    INCOMt 


«  T  O    «    3 


UNITED  RAILROADS    OF  SAN  FRANCISCO 
FISCAL  YEAR  ENDING    0EC.3IJ9M 


DISTRIBUTION      OF 

OPERATING    LABORfe  SHARE. 

OF  INCOMt 


FIGURE  21  —PROPORTIONATE  DISTRIBUTION  OF  INCOME. 
What  proportion  of  the  total  street  railway  income  is  received  by  Com- 
pany, Public,  Labor  and  Service  respectively,  is  illustrated  m  this  diagram  by 
the  relative  areas  of  the  "slices."  "Operating  labor"  here  includes  all  em- 
ployees receiving  a  wage  of  $1,500  per  annum  or  under.  This  labor  .then  com- 
prises just  one-half  of  the  direct  operating  expense  and  is  distributed  be- 
tween the  various  operating  departments  in  detail,  trainmen  receiving  iV /o  ol 
the  total  wages.  For  every  $100  of  income,  $35  is  applied  by  the  Company 
to  the  payment  of  fixed  charges,  sinking  fund,  and  dividends ;  $30  is  required 
for  service;  and  $30  pays  operating  labor,  of  which  platform  men  receive 
$18,  approximately.  Only  $5  goes  to  the  Public  in  the  form  of  taxes;  and  ot 
this  only  $1  reaches  the  City  directly. 


b 


:!' 


* 


PLAN  OF  PROCEDURE 


85 


leaves  30%  and  29%  respectively  available  from  the  annual  income 
for  fixed  charges,  contingency  fund,  and  profit  during  the  first 
period  and  30%  for  the  second  period  from  which  after  deducting 
5%  interest  on  the  agreed  capital  invested  in  the  property,  there  re- 
mains what  is  herein  termed  residual  net  income. 

Plan  1  assumes  the  1911  distribution  of  the  Company's  income, 

Fig.   21,   as   a  basis   of  participation   in   the   residual   net   income, 

which  results  in  profit-sharing  between  Labor,  Company,  City  and 

Service.     Operating  Labor,  including  the  wages  of  every  employee 

receiving  $1,500  per  annum  or  under,  gets  30%;  the  Company 

35% ;  the  City  5%  and  Service  30%.     In  the  share  for  Service  all 

elements  of  the  operating  expenses,  except  operating  labor  as  above 

defined,  may  be  regarded  as  service  rendered  to  the  Public    As  the 

business  becomes  more  profitable,  a  bonus  share  would  thus  be 

available  for  increased  service.    This,  however,  might  lead  to  excess 

service  which  would  not  be  warranted  under  existing  powers  of 

regulation  in  view  of  the  more  pressing  demands  for  extensions  and 

decapitalization.     Or  it  might  encourage  the  Company  to  curtail 

operating  expenses  in  order  to  force  expenditures  from  this  share 

for  this  purpose. 

Plan  2,  however,  "pools"  the  shares  accruing  to  the  City  and 
to  Service  respectively,  in  order  to  give  the  City  the  option  of  either 
increased  service,  decapitalization,  extensions,  or  other  purposes. 
The  shares  to  Labor  and  the  Company  remain  the  same  as  in  Plan  L 

Plans  3  and  4  gradually  modify  the  respective  shares  to  Labor, 
City  and  Company  in  a  direction  affording  the  City  greater  purchas- 
ing power.  However,  Plans  1,  2,  3  and  4  provide  a  bonus  for  Labor 
out  of  residual  net  income,  instead  of  this  bonus  being  charged  to 
operation  where  labor  expenses  properly  belong.  Under  present  con- 
ditions these  plans  would  result  in  an  unwarrantable  diversion  of 
revenue  from  extensions  and  decapitalization  more  urgently  needed. 

Plan  5,  which  I  recommend,  includes  only  the  City  and  Com- 
pany as  direct  participants  in  residual  profits,  the  former  receiving 
55%  and  the  latter  45%.  But  provision  is  also  made  for  Labor 
sharing  indirectly  and  probably  more  remuneratively  than  in  Plans 
3  and  4  by  fixing  the  per  cent  of  income  accruing  to  all  operating 
Labor — in  this  case  30% — the  difference  between  this  fixed  per 
cent  and  actual  wages  paid,  to  be  distributed  in  the  form  of  a 
benefit  fund  insuring  employees  against  disabilities,  and  also  in  the 
form  of  a  bonus  and  merit  system,  as  discussed  in  Chapter  17.  The 
advantage  to  be  derived  results  from  increasing  car  speeds, 
more  efficient  routing,  and  earnings  increasing  faster  than 
expenses    of    car    operation.      This    incorporates    in    the    present 


86 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


"Chicago  plan"  the  bonus  principle,  which  has  been  put  into  effect 
with  success  in  Philadelphia,  and,  it  is  believed,  secures  for  Labor 
a  valuable  form  of  insurance  which,  taken  in  connection  with  the 
relatively  high  wages  paid  in  San  Francisco,  should  be  regarded  as 
an  ample  share  under  present  conditions.* 

Plan  6  does  not  involve  profit-sharing,  but  rather  a  distri- 
bution of  income  arbitrarily  fixed  for  the  remaining  franchise  pe- 
riod, (presumably  subject  to  mutually  agreed  adjustment  from  time 
to  time).  Under  the  distribution  assumed  the  City  receives  8%  of 
the  total  income.  Labor  30%,  Service  (as  defined  in  Plan  1)  32%, 
and  the  Company  30%  out  of  which  it  must  provide  fixed  charges, 
the  amortization  and  contingency  reserve  funds  and  profits. 
While  possibly  practicable,  it  is  much  less  flexible  than  the  pre- 
vious ones,  and  does  not  guarantee  the  Company  any  return  upon  its 
investment,  however  small. 

Ultimate  Financial  Results.  In  the  accompanying  exhibits, 
Figs.  22a,  b  and  c,  the  operations  of  these  various  plans  are  worked 
out  graphically  so  as  to  show : 

L     Capital  investment  in  property. 

2.  Purchase  price  to  City. 

3.  Date  of  recapture  of  property. 

Values.  The  initial  capital  values  considered  herein  were  ar- 
rived at  by  judgment  for  purposes  of  illustration  only,  and  should 
not  be  interpreted  as  an  attempt  to  place  a  value  up^on  the  property. 
On  the  assumption  that  the  depreciated  or  present  value  of  the  physi- 
cal property  is  about  $21,000,000  and  that  about  $7,000,000  should  be 
expended,  within  the  next  few  years,  to  bring  it  up  to  its  assumed 
"cost  to  reproduce  new  value"  of  $28,000,000,  the  diagram  shown 
in  Fig.  22a  has  been  prepared.  After  refinancing  U.  R.  R.  4's  to  5's 
the  resulting  present  bonded  debt  would  be  $33,650,000.  Under 
Charter  Amendment  No.  34  all  sinking  fund  accruals  must  be 
deducted  from  the  purchase  price,  thus  arriving  at  a  total  of  $28,000,- 
000  as  an  assumed  value,  not  including  any  intangible  value  except 
depreciation. 

That  portion  of  the  "intangible  value"!  of  the  property  repre- 
sented by  franchise  value  is  the  earning  power  of  unexpired  fran- 

*In  Philadelphia  the  fixing  of  trainmen's  share  alone  at  22%  of  the  gross  receipts  or 
the  same  as  the  trainmen  received  for  the  year  immediately  preceding  the  date  of  its 
adoption,  has  resulted  not  only  in  benefit  reserve  but  also  increased  wages. 

fSuch  intangible  values  other  than  franchise  values,  are  known  as  development  ex- 
penses, and  usually  consist  of  preliminary  technical  expense,  legal  expenses  during  forma- 
tion of  the  company  not  connected  with  construction  expense,  cost  of  consolidation  and 
reorganizations,  sometimes  a  reasonable  promoter's  profit,  supersession  of  equipment  due 
to  the  rapid  advance  of  the  art,  reconstruction  due  to  unforeseen  contingencies,  brokerage, 
discount  or  premiums  on  securities,  and  losses  during  early  operation.  All  of  these 
and  franchise  value,  if  any,  should  eventually  be  amortized  and  eliminated  from  that 
value  of  the  property  upon  which  the  public  should  be  finally  expected  to  pay  a  reasonable 
rate  of  return,  although  it  is  fair  that  the  company  should  have  time  to  earn  and  pay  to 
itself  this  amortization  fund  out  of  the  earnings  of  the  railway. 


<•» 


^ 


K 


^ 


4 


140 


130 


BION  J.  ARNOLD 


I9IO  I«e0  1930  1940  1950 

FIGURE  22a— PROFIT-SHARING  RESETTLEMENT  PLAN  2. 
Based  upon  a  definite  apportionment  of  net  income — 35%  to  City,  30%  to 
Labor,  and  to  Company  35%  in  addition  to  S%  prior  return  on  "agreed  capital 
value"  (shown  by  full  line).  Assumptions:  date  of  settlement,  December  31, 
1913;  depreciated  value  of  property,  $21,000,000;  initial  intangible  value, 
$14,000,000  all  to  be  amortized  at  the  end  of  20  years,  including  $7,000,000 
rehabilitation  work  which  is  to  be  capitaHzed  and  completed  in  three  years; 
future  investment  to  increase  $3  for  each  additional  $1  earned.  The  pur- 
chase price  to  the  City  at  any  date  is  shown  by  the  dotted  line  and  intangible 
values  to  be  amortized  are  indicated  by  the  distance  (shaded)  between  "pur- 
chase price"  and  investment  (full  black)  curves,  which  values  include  depre- 
ciation accrued  both  prior  to  the  resettlement  and  after  the  completion  of 
rehabilitation.  The  City's  share  if  allowed  to  accumulate  at  5%  should  suf- 
fice to  equal  the  purchase  price  by  1947,  and  thus  automatically  recapture  the 
entire  property  to  the  City  without  cost  by  acquiring  the  underlying  securities 
covering  these  depreciated  values,  i.  e.,  the  actual  value  of  physical  property 
producing  the  service. 


88 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


chises,  and  is  usually  understood  to  be  the  summation  of  all  resid- 
ual net  income  from  the  operating  property  accruing  to  the  Com- 
pany from  year  to  year  with  interest  compounded  to  expiration. 
But  from  this  gross  value  would  have  to  be  deducted  eventually  all 
unfunded  debt  remaining  at  maturity  not  covered  by  salvage  value, 
thus  giving  an  amiount,  the  "present  value"  of  which  would  represent 
the  ''franchise  value"  portion  of  the  "capital  value"  as  of  today, 
which  franchise  value  would  be  more  or  less  affected  by  the  right 
of  the  State  to  regulate  rates.     Conservative  estimates  based  upon 
—1st,  a  minimum  and  2d,  a  maximum  rate  of  probable. residual  net 
earnings  indicate    that    this    intangible    value    might    lie    between 
$7,000,000  and  $12,000,000.    However,  if  unimpaired  earning  power 
and  normal  expansion  of  the  system  are  assumed,  these  values  might 
lie   between   $14,000,000   and   $20,000,000.     While   this   condition 
particularly  applies  to  a  resettlement  plan,  which  would  be  most  fav- 
orable for  the  City's  recapture  of  the  property,  it  would  in  all  prob- 
ability be  too  optimistic  for  the  case  in  which  no  such  resettlement 
could  be  effected,  and  the  Company  decided  to  continue  the  operation 
of  the  present  system  unextended,  with  the  minimum  possible  expen- 
ditures for  maintenance,  betterments  and  service.     In  this  case,  the 
Company  would  strive  to  the  utmost  to  "earn  out"  even  with  less 
total  annual  income,  leaving  only  a  run-down  property  with  little 
salvage  for  the  City  to  condemn  at  the  expiration  of  the  franchise. 
Obviously  this  situation  would  be  aggravated  by  the  extension  of  the 
Municipal  system. 

Financial  Plan  No.  2.      Referring  to   Fig.  22a,   this  study 
assumes  a  total  initial  capital  value  of  $35,000,000,  with  mvestment 
increasing  in  the  ratio  of  $3  to  $1  of  earnings,  until  1933  (20  years 
from  date  of  resettlement).     At  this  time  the  intangible  becomes  au- 
tomatically retired  under  the  terms  of  Amendment  34  by  sinking  fund. 
Thereafter  the  purchase  price  to  the  City  increases  much  slower 
than  the  total  investment,  and  actually  decreases  after  the  maxi- 
mum in  1944.     For  the  entire  franchise  term  of  40  years  the 
investment  will  be  decapitalized  from  $135,000,000  total  to  $65,000,- 
000,  or  over  one-half.    Through  the  operation  of  a  purchase  fund 
accumulated  at  5%  interest  from  the  City's  share  in  residual  net 
earnings,  the  entire  property  reverts  to  the  City  in  1947.    During  the 
later  years  this  fund  builds  up  very  rapidly. 

Financial  Plan  No.  S — Recommended.  In  this  modi- 
fied "Chicago  plan,"  which  in  my  judgment  is  the  most  practical 
of  those  here  presented,  the  operation  of  the  sinking  fund  retires 
all  initial  intangible  value  by  1933  as  required,  but  the  cumulative 
City's  share  suffices  to  acquire  the  property  as  early  as  1941 
that  is,  nearly  six  years  prior  to  the  date  of  recapture  under  Plan  2. 


BiON  J.  ARNOLD 


;l 


I9t0 


1920 


1930 


1940 


1950 


FIGURE  22&— PROFIT-SHARING   RESETTLEMENT  PLAN   5. 

This  plan  differs  from  that  shown  in  Figure  22a  in  that  profit-sharing  in 
the  residual  net  income  exists  only  between  City  and  Company,  the  former 
receiving  55%  and  the  latter  45%.  This  increase  in  the  City's  share  over 
that  of  Plan  2  enables  the  City,  if  it  allows  its  share  to  accumulate  at  o%  m- 
terest,  to  take  over  the  property  without  cost  by  1941,  six  years  earlier  than 
in  Plan  2.  In  both  cases,  an  annual  reserve  of  3%  of  gross  receipts  (at  5% 
interest)  will  suffice  to  amortize  all  initial  intangible  values  allowed  (except 
depreciation).  After  the  first  20  years  initial  intangible  value  is  retired  and 
this  fund  starts  anew  for  amortizing  part  of  the  physical  value.  A  further 
fund  is  necessary  for  amortizing  depreciation  (except  expenditures  for  re- 
habilitation) requiring  4%  of  the  gross  receipts  for  20  years  and  thereafter 
a  sufficient  amount  to  cover  permanent  shrinkage  in  value  through  depre- 
ciation. 


p  i 


90  SAN    FRANCISCO   TRANSPORTATION    FACILITIES 

■ION  J.  ARNOLD 


1910 


1920 


1930 


1940 


1950 


FIGURE  22c— MODIFIED  RESETTLEMENT  PLAN  5  A. 

Profit-sharing  in  the  residual  net  income  between  City  and  Company  the 
same  as  in  Plan  5,  Figure  22h.  The  initial  intangible  value  is  increased  from 
$14,000,000  to  $19,000,000,  which  requires  an  amortizing  annuity  of  4%  of  the 
gross  receipts  for  the  first  20  years  in  order  to  decapitalize  this  value  by 
1933.  Due  to  this  increased  intangible  value,  the  agreed  "capital  value"  is 
also  increased  and  the  residual  net  income  decreased,  so  that  the  property 
reverts  to  the  City  two  years  later  than  in  Plan  5,  or  in  1943,  but  four  years 
earlier  than  in  Plan  2.  In  all  these  plans  the  property  is  assumed  to  be 
maintained  75%  good  throughout  the  second  20-year  period, — i.  e.,  with  not 
more  than  25%  permanent  depreciation. 


PLAN  OF  PROCEDURE 


91 


Assuming  in  Fig.  22c  the  higher  initial  "capital  value"— 
$40,000,000— a  larger  amortization  fund  becomies  necessary  to 
enable  the  Company  to  retire  the  greater  intangible  value  as 
required.  Moreover,  the  purchase  date  will  be  deferred  until 
1943_about  two  years.  It  will  be  noted  that  in  all  cases,  both 
the  amortization  and  purchase  funds  increase  so  rapidly  during 
the  later  years  that  the  actual  amount  of  initial  intangible  value 
has  relatively  little  effect  on  the  date  of  recapture;  whereas 
within  the  next  few  years  following  the  adoption  of  such  a  plan, 
it  would  be  of  greatest  importance  in  case  the  City  desired  to  ac- 
quire the  entire  property. 

These  studies  assume  no  necessity  for  progressively  retiring 
capital  represented  by  intangible  value  within  the  first  20-year 
franchise  period— that  is,  that  all  bonds  purchased  for  the  sinking 
fund  are  held  to  maturity.  If  the  serial  plan  of  retirement  is 
adopted,  this  will  simply  result  in  a  higher  sinking  fund  and  a 
later  date  of  ultimate  recapture.  In  any  such  resettlement  plan, 
the  City  may  obtain  the  greatest  advantage  by  utilizing  its  full 
share  in  a  cumulative  fund  for  recapture.  On  the  other  hand,  if 
the  City  applied  its  share  to  the  building  of  extensions  without 
further  bond  issue,  it  would  realize  only  a  partial  return  on  this 
non-interest  bearing  investment  in  these  extensions  as  compared 
to  a  full  return  on  these  same  extensions,  if  financed  by  the  City 
through  the  purchase  of  the  Company's  bonds. 

If  an  investment  ratio  of  $3.50  to  $1  additional  earned  were  es- 
tablished for  future  investment  in  the  property,  this  would  result  in 
deferring  the  date  of  recapture  shown  in  Fig.  22b  by  about  four 
years— i.  e.,  to  1945 ;  and  in  Fig.  22c  by  about  five  years,  or  1948. 

Return  on  Investment.  The  estimated  returns,  Table  57, 
indicate  that  the  extended  property  would  be  able  to  earn  a  rate 
of  return  on  the  probable  tangible  value  approximating  10%  in  1930, 
or  8%  on  the  agreed  "capital  value";  that  the  Company  would 
receive  a  return  of  over  7%  on  tangible  value,  and  that  the  City 
would  derive  in  cash  return,  exclusive  of  taxes,  as  high  as  2.0% 
on  tangible  value. 

Conclusions.  In  the  foregoing,  I  have  attempted  to  show 
that  only  through  a  resettlement  will  the  City  be  able,  in  all  prob- 
ability, to  extricate  itself  from  the  embarrassment  of  inadequate 
purchasing  power  which  limits  its  ability  to  expand  its  traction 
system  and  the  Company  from  the  curtailment  of  its  earnings  due 
to  expiring  franchises.  By  means  of  this  indeterminate,  profit- 
sharing  franchise,  the  three  great  essentials  will  be  secured : 


92  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

1.  Continuous,  adequate  equipment  and  service. 

2.  Extensions  as  required. 

3.  Ultimate  municipal  ownership. 

I  see  no  danger  to  the  City  of  San  Francisco  in  such  a  co- 
operative measure  if  carried  out  through  a  proper  administrative 
body;  and  I  believe  that  such  a  measure  would  represent  the 
greatest  step  that  has  yet  been  taken  in  the  solution  of  municipal 
transportation  problems.  I  therefore  most  urgently  recommend 
the  re-submission  of  the  necessary  charter  amendment  and  the 
negotiation  of  a  resettlement  franchise. 

And  finally,  I  desire  to  state  that  the  longer  the  citizens  of 
San  Francisco  delay  meeting  this  situation  squarely,  with  sound 
business  judgment,  the  more  crucial  will  become  the  chaos  into 
which  the  City  is  drifting  in  its  utility  affairs.  The  ten  years' 
traction  war  in  Chicago  and  its  solution  in  the  form  of  the  resettle- 
ment ordinances  of  1 907  is  a  striking  example  for  every  municipality 
confronted  with  these  municipal  problems. 


PART  II 
SERVICE  AND  ROUTING 


Chapter  5.    Traffic  and  Service  in  the  Loading  Dis- 
trict. 

Chapter  6.     Relief  of  Lower  Market  Street. 

Chapter  7.     Rerouting  and  Service  Distribution. 


CHAPTER  5 

TRAFFIC  AND  SERVICE  IN  THE 
LOADING  DISTRICT  t 

Results  of   Traffic  Counts 
Analysis  of  Rush  Hour  Service 

In  order  to  determine  with  an\f  degree  of  accuracy  the  conditions  of 
rush  hour  traffic,  it  n>as  necessary^  to  conduct  a  series  of  detailed  traffic 
counts  covering  a  t'^pical  or  composite  period.      The  results  as  applied  to 
the  downtown  or  loading  district  only  are  included  in  this  chapter,  which 
has  a  two-fold  object:    (1)    to  show  the  magnitude  of  the  problem  of 
transporting  during  one  hour  over  20%  of  the  total  daily  passenger  traffic; 
and   (2)    to  indicate  what  character  of  service  is  being  rendered  on  the 
various  railway  lines,  as  shown  by  a  composite  **cordon  count**  in  which 
all  outbound  passengers  were  intercepted  on  their  journey  homeward  from 
the  business  district.      The  detailed  application  of  these  results  to  individual 
routes  is  treated  in  Chapter  7  under  the  head  of  "Service  Redistribution,** 
wherein  proper  standards  of  service  are  developed.       The  limits  of  **down' 
town*  or  loading  district,  may  be  defined,  from  a  traffic  standpoint,  at 
including  the  points  of  maximum  outbound  loading  on  the  individual  routes; 
that  is,  the  limits  within  which  the  loading  of  cars  is  completed.    This  sub- 
division of  the  traffic  problem  into  business  district  and  out-lying  district 
is  an  entirely  logical  one,  as  the  needs  of  the  former  differ  materially  from 
those  of  the  latter.    Owing  to  the  variation  in  travel  from  day  to  day,  thii 
traffic  study  cannot  represent  all  conditions  that  occur,  but  rather  is  in- 
tended to  give  an  impression  of  typical  operating  conditions  existing  during 
a  normal  business  day,  that  is,  excluding  Saturdays  and  Sundays  and  other 
days  of  unusually  light  or  heavy  travel. 

CONCLUSIONS   AND   RECOMMENDATIONS 

1.  Adequate  city  transportation  is  largely  a  question  of  meet- 
ing on  the  one  hand  the  capacity  demands  of  the  four  rush  hours, 
when  one-half  of  the  total  day's  travel  must  be  handled,  and,  on 
the  other,  of  providing  a  reasonably  frequent  headway  during  the 
remaining  hours  of  light  travel.  The  former  requires,  for  four 
hours  only,  about  twice  the  number  of  cars  and  crews  necessary 
for  the  balance  of  the  business  day. 


Footnote:      These   observations    all    apply   to    service   conditions   of   July,    1912,    and 
therefore  are  now  subiect  to  some  modification  due  to  increase  of  traffic  since  then. 
tFormerly  Preliminary  Report   No.    11,   submitted   Dec.   23,    1912. 


96 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


I      ! 


li\} 


!f! 


2.  Outside  of  the  extra  investment  in  rush  hour  equipment, 
the  greatest  problem  is  to  provide  a  reasonable  day's  work  for 
rush  hour  trainmen  without  running  idle  cars  during  the  day  to 
fill  out  the  working  day  of  "tripper"  men. 

3.  Of  the  two  rush  hour  periods,  the  evening  has  by  far  the 
heavier  travel — easily  100%  greater  than  the  average  for  the 
business  day,  and  20%  greater  than  the  morning  peak.  On  prac- 
tically all  lines,  maximum  travel  occurs  within  a  short  period 
from  5  :15  to  5  :30  p.  m.,  and  is  approximately  10%  higher  than 
the  hourly  average. 

4.  A  composite  passenger  count  of  all  lines  leaving  the 
business  district  during  the  evening  rush  hour  indicated  a  total 
homeward  travel  of  about  49,000  passengers  per  hour,  84%  of 
which  was  city  bound,  and  only  16%  trans-bay  commuters. 
Although  nearly  15,000  commuters  crossed  at  this  time  each 
day,  Ferry-bound  riding  was  found  to  be  generally  light,  as  over 
half  of  the  commuters,  encouraged  by  street  and  terminal  obstruc- 
tions, walked  to  the  Ferry. 

5.  Over  42%  of  the  total  traffic  was  carried  by  Market  and 
Mission  Streets,  while  the  remaining  streets  of  the  Mission  were 
comparatively  little  used,  thus  indicating  the  desirability  of 
rerouting.  All  Market  Street  lines  carried  only  about  11,700  pas- 
sengers per  hour,  which  gives  an  indication  of  the  capacity  of 
such  a  throat  of  travel.  Powell  Street,  although  using  the  small- 
est cable  cars  of  the  system,  was  the  heaviest  loaded  cable  line, 
and  only  carried  about  1,500  passengers  per  hour. 

6.  The  operations  of  the  Traffic  Squad  have  been  eflFective 
and  should  be  encouraged,  as  street  congestion  is  responsible  for 
a  considerable  reduction  in  speed  and  carrying  capacity.  The 
average  operating  speed  in  the  terminal  district  is  exceedingly 
low,  but  since  1905  the  average  schedule  speed  for  the  city  has 
increased  from  7.6  to  8.5  miles  per  hour,  or  over  12  per  cent. 

7.  A  study  of  car  distribution  indicates  an  excessive  number 
of  cars  on  lower  Market  Street,  due  to  the  progressive  delays 
extending  to  and  in  the  Ferry  loops.  This  can  be  relieved  by 
rerouting  and  terminal  improvements. 

8.  The  prepayment  principle  for  collecting  fares  has  not  been 
given  a  fair  trial  in  San  Francisco,  especially  as  applied  to  short 
platform  cars  designed  for  non-prepay  collection,  particularly 
those  fitted  with  fare  boxes,  which  require  about  two-thirds  more 
time  to  load  a  passenger  than  for  the  long  platform  of  the  latest 
Oakland  cars.  With  a  properly  designed  platform,  passengers 
can  load  at  a  speed  of  about  one  second  each. 


TRAFFIC  AND  SERVICE 


97 


I 


9.  A  comparison  of  official  schedules  of  1909  and  1912  indi- 
cates on  the  whole  a  small  increase  in  equipment  operated  as 
determined  by  trips  scheduled.  Checks  against  operating  sched- 
ules covering  every  car  in  the  system  showed  that  practically 
all  gf  the  available  rolling  stock  is  being  operated,  there  being 
only  8%  idle  cars  out  of  the  total,  5%  being  held  for  emergencies 
and  the  remainder  undergoing  repair. 

10.  The  most  direct  measure  of  service  is  the  average  load- 
ing of  equipment  during  a  period  long  enough  to  secure  typical 
results.  This  may  be  expressed  as  total  passenger  load  in  per 
cent  of  seats  furnished,  or  as  per  cent  excess  loading  over  seats. 

11.  Comfortable  standing  should  be  limited  to  50%  above 
seating  capacity  for  cross  seats,  100%  above  for  longitudinal 
seats,  or  3  sq.  ft.  per  standing  passenger  allowed  for  normal 
maximum  capacity.  Thus,  the  "California"  type  prepay  car,  with 
a  reasonable  proportion  of  cross  seats,  should  not  carry  much  over 
90  to  100  passengers  maximum  at  one  time. 

12.  Analysis  of  service  standards  indicates  excessive  load- 
ing on  many  routes.  While  the  average  car  loading  throughout 
the  city  during  the  rush  hour  was  58%  in  excess  of  seats  fur- 
nished, that  of  Mission  Street  was  112%  for  the  hour  and  for  the 
heaviest  15-minute  period  both  Market  and  Mission  throats  showed 
135%  excess  loading  over  seats  furnished. 

13.  Individual  car  loading  was  frequently  so  excessive  as  to 
make  it  impossible  for  conductors  to  reach  passengers  on  non- 
prepay  cars.  In  one  case  90  passengers  were  missed  on  a  single 
trip — 38%  of  the  registration — which  shows  the  necessity  for 
prepayment  platforms,  properly  designed. 

14.  The  most  prolific  cause  of  excessive  car  loading  is  irreg- 
ularity of  headway,  due  to  street  obstructions,  careless  dispatch- 
ing, or  improper  schedules.  At  present,  delays  of  three  to  four 
times  the  headway  are  common. 

15.  Of  all  lines  throughout  the  city,  those  operating  on  Mis- 
sion Street  are  heaviest  loaded,  and  require  first  attention  in  de- 
creased headway  and  better  equipment.  Of  the  several  cable 
lines,  Powell  Street  conveys  the  most  passengers  during  the  rush 
hours,  and  with  the  most  inadequate  equipment. 

16.  The  great  interchange  of  transfer  passengers  clearly  in- 
dicates the  effectiveness  and  need  of  cross-town  lines  in  city 
service. 

17.  The  new  equipment  now  under  construction  will  proba- 
bly reduce  the  average  excess  rush  hour  loading  from  58%  now 


98 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


■I 


h 


to  about  38%,  which  would  barely  have  sufficed  for  July,  1912 
(neglecting  the  needs  of  the  Exposition  in  1915),  unless  by  means 
of  a  general  rerouting,  much  car  mileage  now  unused  could  have 
been  conserved  where  most  needed,  thus  giving  more  service  for 
the  same  number  of  equipments  and  trainmen  on  duty. 

18.  In  conclusion,  permanent  relief  from  the  conditions  above 
enumerated  may  be  obtained  only  by,  1st,  an  increase  in  car 
mileage  (carrying  capacity)  to  be  secured  through  effective 
rerouting  and  additional  equipment;  2nd,  more  uniformity  In 
headway  to  be  secured  by  improved  schedules,  inspection  and 
dispatching,  and  decreased  street  obstruction ;  and  3rd,  increased 
operating  speed,  both  in  the  loading  of  passengers  and  along  thor- 
oughfares. 

GENERAL  DISCUSSION 

The  Problem  of  the  Rush  Hour.  The  wide  fluctuation  in 
capacity  demand  during  various  hours  of  the  day  is  due  principally 
to  the  fact  that  the  requirements  of  business  cause  practically  all  the 
business  population  of  the  city  to  be  moved  to  and  from  their 
homes  at  about  the  same  periods  of  the  day — that  is,  from  7  to  9 
a.m.  and  4  to  6  p.m.  During  these  four  rush  hours,  approximately 
one-half  of  the  total  day's  travel  must  be  handled.  The  accom- 
panying diagram  (Fig.  23)  indicates  graphically  the  enormous 
fluctuation  in  travel  that  must  be  met  by  a  properly  operated  railway 
system. 

Furthermore,  a  considerable  difference  exists  between  morning 
and  evening  travel  in  the  suddenness  and  severity  of  the  peak 
loads.  Owing  to  the  lesser  rigidity  of  business  hours  in  the  morning, 
travel  is  spread  over  a  longer  period  than  in  the  evening,  resulting 
in  a  lower  peak  load.  Thus,  the  outbound  evening  peak  is  2.4  times 
that  of  the  morning;  while  the  morning  inbound  peak  is  only  1.4 
times  as  great  as  the  inbound  evening  peak.  And  finally,  the  differ- 
ence in  this  fixed  riding  habit  is  shown  in  a  total  evening  peak,  both 
inbound  and  outbound,  1.2  times  or  20%  more  than  the  morning 
peak.  It  is  thus  clear  that  any  condition  tending  to  restrict  business 
hours  within  definite  limits  tends  to  accentuate  the  suddenness  and 
severity  of  the  daily  rush  hour  peak  load,  and  the  difficulty  of  giving 
adequate  service. 

Analyzing  the  evening  rush  hour  travel  in  more  detail,  it  is 
found  that  the  maximum  on  practically  all  lines  occurs  in  this  city 
between  the  hours  of  5  and  6  p.m.,  outbound.  This  is  shown  in 
Fig.  24  where  the  maximum  crest  for  the  entire  system  occurs  within 
the  second  15-minute  period.     As  these  counts  were  taken  at  the 


TRAFFIC  AND  SERVICE 


99 


■ION  J.  ARNOLD 


FIGURE  23— TYPICAL  DAILY  TRAFFIC  LOAD   CURVE. 

Showing  outbound,  inbound,  and  total  passenger  travel  for  the  United 
Railroads  system  for  each  hour  of  the  day.  The  fluctuations  within  the  hour 
are  not  indicated  in  this  diagram.  The  shaded  section  indicates  outbound 
travel  which  gives  the  most  severe  daily  peak.  Note  that  the  morning  peak, 
inbound  (dotted  lines)  is  considerably  less  severe  than  the  evening  outbound 
peak,  which  simply  increases  the  difficulty  in  arranging  schedules  convenient 
for  extra  or  tripper  trainmen.  For  the  evening  rush  hour  practically  double 
the  equipment  is  necessary  as  for  average  day  service. 


H 


Riiii 


u 
I 


100 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


point  of  maximum  loading  on  the  individual  routes,  the  maximum 
period — 5:15  to  5:30 — simply  reflects  the  result  of  the  closing  of 
the  official  day  at  5  :00  p.m.  Market  Street  alone  shows  the  peculiar- 
ity of  a  peak  later  than  5  :30,  due  to  the  closing  of  the  retail  stores 
generally  at  5  :30.  However,  the  total  variation  within  the  hour  is 
only  2,400  out  of  12,200  passengers,  or  less  than  20%  of  the  total. 
The  problem  of  the  rush  hour  therefore  constitutes  the  major 
problem  of  street  railway  transportation,  on  account  of  the  burden 
it  imposes  in  the  matter  of  extra  equipment  and  accessories,  and 
particularly  extra  platform  expense  (motormen  and  conductors) 
for  short-time  men,  who  are  forced  to  accept  a  four-hour  working 
day  or  thereabouts,  unless  the  midday  schedule  is  deliberately  in- 
creased for  the  sole  purpose  of  giving  these  short-time  men  reason- 
able employment.  This  conclusion,  then,  is  capable  of  two  inter- 
pretations : 

First.  With  an  adequate  day  service,  the  rush  hour  service  must 
be  exceedingly  poor. 

Second.  With  an  adequate  rush  hour  service,  the  day  service 
must  be  unnecessarily  good. 

This  condition,  in  effect,  has  occurred  in  the  street  car  operations 
of  this  city.  While  the  maximum  evening  travel  is  2.4  times  the 
minimum  midday  travel,  the  maximum  car  movement  is  only  1.65 
times  that  of  the  minimum  midday — that  is,  65%  additional  trips 
are  run  during  the  evening  rush  period,  which  is  far  too  low  for  a 
proper  balance  of  service.  In  most  large  American  cities  practically 
double  service  during  evening  rush  hour  is  found  necessary.  This 
rush  hour  service  ratio  must  be  interpreted  with  caution,  however, 
and  in  the  last  analysis,  the  only  absolute  criterion  is  actual  average 
loading  of  equipment.  This  has  been  determined  by  the  composite 
day  counts,  as  later  presented.  Even  this  measure  of  the  possibilities 
of  service  may  be  misapplied,  for  it  is  possible  by  a  too  rigid  applica- 
tion of  the  unit  capacity  rule  to  prescribe  a  rush  hour  service  that 
cannot  be  sustained  by  the  resultant  net  earnings  from  the  business. 

Seasonal  Variation.  In  this  connection,  it  should  be  recalled 
that  the  seasonal  variation  in  traflfic  in  the  City  of  San  Francisco 
is  relatively  small,*  as  the  riding  is  nearly  as  heavy  in  summer  as 
in  winter,  so  that  practically  the  same  rolling  stock  may  be  used 
throughout  the  year.  In  some  cities,  where  the  seasonal  and  climatic 
variation  is  many  times  greater,  an  entirely  separate  equipment  of 
summer  cars  becomes  necessary,  the  duplicate  investment  in  which 
lies  idle  during  the  winter  months  and  vice  versa.    This  condition 

•About  10%  above  and  below  mean;  Maximum,  October,  November;  Minimum,  June, 
July. 


TRAFFIC  AND  SERVICE 


101 


■ION  J.  ARNOLD 


5-30 


5:45 


6-00  P.M. 


FIGURE  24— TYPICAL   RUSH   HOUR   LOAD   CURVE. 

Showing  the  wide  variation  in  travel  during  the  maximum  evening  rush 
hour — 5  to  6  p.  m.  This  analysis  applies  both  to  the  total  system  outbound 
from  the  business  district,  and  also  to  important  throats  of  travel.  Note  that 
the  maximum  period  of  travel  occurs  between  5  :15  and  5  :30  p.  m.  (excepting 
on  Market  Street  and  a  few  other  lines),  with  a  peak  10%  higher  than  the 
average  for  the  hour  as  designated  by  Fig.  23. 


102  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

inanifestly  results  greatly  to  the  interest  of  any  company  operating 
in  San  Francisco  in  reducing  its  investment  and  thereby  increasmg 
the  possibilities  of  good  service. 

Vehicle  Traffic  Counts.  One  very  serious  cause  of  the  in- 
creased difficulties  of  giving  adequate  service  is  the  interference  of 
vehicle  traffic.  A  very  material  improvement,  however,  has  resulted 
from  the  institution  of  traffic  regulation  in  this  city  by  the  Police 
Traffic  Squad,  with  the  result  that  heavy  and  slow  moving  vehicles 
are  being  gradually  encouraged  to  seek  and  follow  less  congested 
thoroughfares,  which  has  greatly  facilitated  passenger  movement.! 
Table  18  shows  the  actual  volume  of  traffic  which  now  exists  at  the 
various  intersections  listed.  The  more  effective  this  regulation,  the 
more  will  passenger  transportation  be  improved  in  this  city.  As 
an  illustration,  the  vehicle  movement  at  Fourth  and  Market  Streets 
has  already  been  reduced  by  traffic  regulation  over  100%  since  last 
year. 

Schedule  Speed.  The  average  operating  speed  on  typical 
main  thoroughfares  has  been  compiled  in  Table  19  for  the  purpose 
of  comparing  the  so-called  "city  terminal"  district  with  typical 
sections  of  lines  in  other  parts  of  the  city,  where  slow,  medium, 
and  rapid  running  occur.  While  the  average  schedule  speed  for 
the  entire  city  is  8.5  miles  per  hour,  the  actual  operating  speed 
in  the  terminal  district  is  but  little  over  half— 4.4  miles  per  hour; 
in  the  next  zone  of  operation,  6.7;  further  out  in  the  districts 
where  vehicle  interference  is  small,  8.9;  and  finally  on  thorough- 
fares clear  of  interference,  as  high  as  11.3  miles  per  hour. 

This  exceedingly  low  speed  in  the  central  terminal  district, 
averaging  about  the  same  speed  as  brisk  walking,  undoubtedly 
accounts  for  the  loss  to  the  railway  company  of  a  very  large 
amount  of  short-haul  traffic,  which  is  by  far  the  most  lucrative  of  all 
the  traffic  handled.  Therefore,  any  measures  tending  to  increase 
running  speed  tvill  make  possible  more  service  in  the  poorly  paying 
outlying  districts  for  the  same  total  income  per  year. 

Since  the  electrification  of  the  cable  lines,  the  schedule  speed 
has  increased  about  12%  and  is  continually  improving,  thus  real- 
izing one  of  the  greatest  advantages  of  electric  service. 

1905—7  599  1908—7.91  1911—8.43 

.    1906-7.647  1909—8.113  1912—8.509* 

1907—6.85  1910—8.284  •Eight  months  only. 

These  average  figures  are  based  upon  the  actual  car  hours  or 
running  time  of  trainmen. 

tTypical   conditions  of  the  congested   downtown   street   intersections   are   illustrated  in 
Chapter  6,  Fig.   27. 


TRAFFIC  AND  SERVICE 


103 


Effect  of  too  Frequent  Stops.  Another  important  ele- 
ment in  preventing  high  schedule  speed  is  too  frequent  stops. 
Numerous  observations  made  on  various  routes  indicate  a  relation 
between  stops  and  speed  as  follows : 

10  stops  per  mile,  528  ft.,  7.5  miles  per  hour. 
8  stops  per  mile,  660  ft.,  8.4  miles  per  hour. 
6  stops  per  mile,  880  ft.,  9.4  miles  per  hour. 
4  stops  per  mile,  1320  ft.,  11.0  miles  per  hour. 
2  stops  per  mile,  2640  ft.,  13.7  miles  per  hour. 

Thus  a  stop  at  every  city  block  of  400  feet  permits  a  speed  of 
only  6.4  miles  per  hour,  while  a  stop  at  every  other  block  would 
permit  an  increase  in  speed  of  over  40% — to  9.2  miles  per  hour. 
This  illustrates  the  necessity  of  eliminating  every  stop  not 
actually  needed  for  serving  the  majority  of  passengers,  and  also 
the  desirability  of  alternate  stops  in  sections  of  the  city  where 
very  short  blocks  occur.  That  550  ft.  is  not  an  unreasonable 
hardship  is  apparent  from  the  fact  that  the  standard  block  in  the 
100- Vara  district  is  now  633  ft.  wide  by  908  ft.  in  length  along 
trunk  lines  (including  streets).  In  Richmond  and  Sunset  the 
average  block  is  only  310  ft.  wide  along  trunk  lines,  making  pos- 
sible over  17  stops  per  mile — entirely  too  many  for  a  through 
or  trunk  line. 

An  effort  may  well  be  made  to  improve  conditions  on  all  trunk 
lines  in  the  city,  of  which  the  following  are  typical : 

Stops  per  Mile. 

<       Market  Street,  one  mile  west  from  Ferry  building. .  11 

Mission  Street,  one  mile  west  from  Ferry  building. .  9.4 

Sutter  Street,  Market  Street  west 11 

Third-Kearny,  Mission  Street  north 16 

Fillmore  Street,  McAllister  Street  north 16 

Ninth-Polk,  Post  Street  north 15 

Cable  lines,  from  termini 12 

For  one  stop  per  mile  saved  {within  ordinary  ranges  of  speed) 
an  increase  of  speed  averaging  about  3.6%  zvill  be  realised, 
this  percentage  increasing  in  proportion  as  the  speed  of  the  line 
increases. 

Relative  Loading  Time.  The  results  of  a  large  number  of 
observations  on  the  various  types  of  cars  in  service  indicate  that 
the  prepayment  principal  has  not  been  given  a  fair  trial  in  San  Fran- 
cisco, because  of  its  being  applied  to  cars  designed  for  non- 
prepay  service  with  short  or  constricted  platforms.  Thus,  for  a 
group  of  25  passengers  boarding  at  one  point  (a  condition  which 
occurs  at  the  Ferry  regularly),  the  short  platform  cars  fitted 


104 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


with  fare  boxes  require  about  two-thirds  more  time  per  passen- 
ger than  for  the  long  platforms  in  the  latest  Oakland  cars  fitted 
with  a  movable  handrailing,  and  twice  that  required  by  the  stand- 
ard Chicago  car. 

In  Chapter  9,  detailed  recommendations  are  made  for  the 
improvement  of  the  present  platforms  and  entrances  in  order  to 
facilitate  loading  speed  on  existing  equipment. 

Car  Distribution.  An  effective  graphic  illustration  of  condi- 
tions in  San  Francisco  resulting  in  the  present  congestion  of  cars 
along  Market  Street  is  the  car  location  map,  Plate  6,  showing 
the  actual  distribution  of  all  cars  on  the  system  at  the  time  of 
maximum  evening  traffic— 5  :15  p.  m.  While  the  rectangular  plan 
of  streets  south  of  Market  provides  outlet  thoroughfares  for  cars 
from  the  business  district  along  parallel  streets,  no  such  thor- 
oughfares exist  north  of  Market,  with  the  result  that  all  lines  of 
the  Western  Addition,  as  well  as  the  cross-town  lines  of  the 
northern  district,  must  feed  directly  into  Market  Street,  result- 
ing in  the  congestion  indicated,  which  is  equivalent  to  an  aver- 
age headway  of  only  28  seconds  between  cars. 

This  condition  can  only  be  relieved  by  the  improvement  of 
loading  speed,  diversion  of  unnecessary  vehicle  traffic,  and  rerout- 
ing of  cars  in  the  terminal  district,  plans  for  which  are  presented 
in  another  chapter. 

Comparison  of  Headway,  Past  and  Present.  The  actual 
headways  observed  on  the  various  routes  are  of  interest  here  as 
compared  with  previous  records. 

(1)  Service  count,  conducted  by  the  Chamber  of  Commerce 

in  1909. 

(2)  Schedule  submitted  by  operating  company  to  the  Board 

of  Supervisors  in  1911. 

(3)  Check  count  made  during  the  present  year  prior  to  the 

composite  traffic  count,  and  without  the  knowledge  of 
the  operating  company. 

These  comparative  checks  show  not  only  a  general  improve- 
ment in  service,  although  small,  but  also  no  evidence  of  attempt 
by  the  operating  company  to  temporarily  improve  the  service 
on  particular  lines  counted  while  the  traffic  record  was  being 
obtained.  Further  evidence  against  possible  distortion  of  the  rec- 
ords by  the  temporary  addition  of  cars  is  offered  by  the  fact  that 
the  entire  available  equipment  had  been  in  regular  service,  which 
automatically  prevented  any  further  equipment  being  pressed 
into  service. 


TRAFFIC  AND  SERVICE 


105 


Check  on  Service.  Additional  check  counts  were  made  on 
July  1st  and  July  15th  without  the  knowledge  of  the  operating 
departments  for  comparing  the  official  operating  schedule  (Table 
24)  with  the  equipment  actually  operated  on  the  streets  during  these 
typical  working  days.  At  the  same  time,  the  equipment  reserved 
in  the  car  houses  and  shops  or  storage  yards  was  noted,  with  the 
following  results,  indicating  a  very  slight  variation  in  commis- 
sioned equipment : 


July  1st. 

Number  of  trips  operated 7,594 

Number  of  cars  commissioned 596 


Fuly  15th. 

7,607 
607 


Practically  all  of  the  available  rolling  stock  was  operating  un- 
der the  existing  week-day  schedule — that  is,  every  car  was  sent 
out  on  a  rush  hour  trip,  either  on  a  "regular"  or  an  "extra"  run. 
Out  of  a  total  of  661  cars,  32  cars  were  found  in  the  various  car 
houses  and  22  in  the  car  shops  undergoing  repair.  Thus  with 
only  8%  idle  cars,  5%  were  held  ready  for  emergency  service.  The 
operating  company  is  therefore  using  its  available  rolling  stock  to 
the  best  possible  advantage,  and  it  is  a  creditable  showing  that 
so  large  a  percentage  of  its  equipment  remains  in  serine e,  which 
indicates  a  high  degree  of  maintenance.  This,  of  course,  has  no 
bearing  upon  the  question  whether  or  not  this  equipment  is  ade 
quate  for  the  requirements  of  rush  hour  service. 

Car  Capacities.  In  the  development  of  a  "service  standard," 
an  element  of  pure  judgment  arises  in  what  may  be  considered 
as  car  capacities — that  is,  seated  load  plus  standing  load.  Various 
methods  have  been  applied  heretofore  to  obtain  a  measure  of 
"comfortable"  standing  capacity: 

First.  Standing  floor  area  has  been  computed  at  a  fixed  num- 
ber of  square  feet  per  passenger,  considering  standing  passengers 
as  distributed  indiscriminately  throughout  the  car  without  refer- 
ence to  the  maintenance  of  a  proper  aisle  space. 

Second.  An  arbitrary  number  of  standing  passengers  is 
allowed  opposite  each  seat. 

I  am  inclined  to  favor  the  second  plan,  as  it  is  defitiite  and 
more  applicable  to  the  particular  type  of  car  under  consideration. 
Thus,  as  a  general  rule,  for  cross  seats  50%  additional  standing 
capacity  will  permit  of  the  maintenance  of  the  proper  aisle  space — 
that  is,  one  standing  passenger  opposite  each  two  seated :  and  for 
longitudinal  seats  100% — that  is,  one  standing  passenger  opposite 
each  seated  passenger — both  exclusive  of  platform.  The  longest 
platforms  of  San  Francisco  cars  will  accommodate  from  eight  to 


t 


106 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


ten  standing  passengers,  and  the  short  platforms,  five  or  six.  This 
rule  applied  to  the  wide  Sutter  Street  cars  on  the  one  hand  and 
the  standard  Geary  Street  cars  on  the  other  results  in  a  relative 
"comfortable"  capacity  of  98  and  81  respectively,  both  with  44 
seats  in  the  car  body. 

While  the  above  rule  may  be  regarded  as  a  "comfortable 
capacity"  for  the  modern  double-truck  San  Francisco  car,  exces- 
sive loading  under  unusual  traffic  conditions  such  as  baseball 
games  warrants  a  higher  loading.  On  a  basis  of  three  square  feet 
per  standing  passenger,  the  wide  longitudinal  seat  car  will  accom- 
modate 108  passengers,  and  with  two  square  feet  per  standing 
passenger,  134  passengers  per  car. 

It  is  therefore  recommended  that  reasonable  standards  to  be 
applied  to  all  types  of  cars  are  as  follows: 

(1)  Comfortable  standing,  50%  in  excess  of  cross  seats,  and 

100%  in  excess  of  longitudinal  seats,  plus  platforms. 

(2)  Normal  maximum  capacity,  three  square  feet  per  stand- 

ing passenger. 

(3)  Emergency    maximum    capacity,    two    square    feet    per 

standing  passenger. 

The  appended  Capacity  Table  20,  is  based  upon  these  stand- 
ards, and  applied  in  the  rerouting  studies  later  discussed, 
excepting  that  they  have  necessarily  been  reduced  on  all  prepay 
types  of  cars  by  a  sufficient  amount — 10% — to  compensate  for 
non-uniform  car  loading.  On  this  basis,  the  carrying  capacity 
of  a  trunk  line  operating  under  a  30-second  headway  (as  in  the 
case  of  Market  Street)  will  be  as  follows: 


"California"  Type 

Prepay  Car. 

Per  Car.        Per  Hour. 


8760 

9360 

11400 


Lonsritudinal  Seat 

Prepay  Car. 
Per  Car.      Per  Hour, 


86 

98 

121 


10320 
11760 
14520 


Comfortable  carrying  capacity ...     73 

Normal  maximum  capacity 78 

Emergency  maximum  capacity . .     95 

Preferential  Standing.  Allowance  must  be  made,  especially 
in  San  Francisco,  for  the  existing  fact  that  many  passengers  stand 
by  preference  even  when  seats  are  vacant.  The  proportions  to 
which  this  preferential  standing  may  extend  are  well  brought  out 
by  an  investigation  by  the  Wisconsin  Railroad  Commission 
covering  many  thousand  observations,  and  which  showed  that 
with  a  full  carload  as  high  as  20%  of  the  seating  capacity  rep- 
resents standing  by  preference.      This  only  emphasizes  the  necessity 


TRAFFIC  AND  SERVICE 


107 


of  a  car  design  for  San  Francisco  which  will  recognize  the  desire 
of  many  persons  to  stand,  especially  smokers,  and  consequently 
the  necessity  of  providing  ample  open-air  space.  This  relation 
is  abstracted  from  reports  of  the  Wisconsin  Railroad  Commis- 
sion.   (Harris  on  the  Milwaukee  St.  Rys.),  as  follows: 


Total  Load  on 
42-Seat  Car. 

1-4 

5-9 

10-14 

15-19 
20-24 
25-29 
30-34 
35-39 
40-42 


Total  Average  Passengers 
Standing  by  Preference. 

1 

1.3 

2 

3 

4 

5 

6 

7 

8 


Percentage 
Standing  by  Preference 

20. 

17.75 

17.9 

18.2 

18.5 

18.8 

19.1 

19.5 

Passenger  Flow — Rush  Hour.  In  the  study  of  travel  dur- 
ing the  maximum  or  evening  rush  hour,  it  is  necessary  to  con- 
sider only  that  outbound  from  the  business  district  in  defining  the 
existing  service  standards.  Although  the  same  number  of  cars 
are  actually  operated  inbound,  the  inbound  travel  is  extremely 
light  and  the  cars  are  so  operated  that  they  may  loop  and  return 
to  the  loading  district  at  the  proper  time  to  pick  up  outbound 
travel.  This  simplifies  the  study  considerably  and  makes  it  pos- 
sible to  illustrate  rush  hour  conditions  by  means  of  such  a  dia- 
gram as  shown.  Here  the  traffic  is  considered  as  originating  in 
all  directions  from  the  center  of  the  business  district,  Third- 
Kearny-Market  Streets,  consequently  trans-bay  traffic  bound  to 
the  Ferry  on  so-called  "inbound"  cars  are  here  considered  as 
outbound  travel,  but  computed  separately. 

The  graphical  record,  Fig.  25,  clearly  indicates  the  prepon- 
derance of  traffic  on  Market  and  Mission  Streets,  the  convergence 
of  Western  Addition  traffic  into  the  Market  Street  throat,  the 
relatively  large  traffic  already  on  Mission  Street  as  compared 
with  parallel  thoroughfares,  the  relatively  small  carrying  capacity 
of  the  cable  lines ;  and  finally,  the  small  amount  of  traffic  riding 
to  the  Ferry  as  compared  with  the  total  known  trans-bay  traffic, 
due  to  the  prevalent  walking  habit  of  these  commuters. 

From  this  diagram,  it  is  clear  that  the  streets  of  the  100- Vara 
district,  parallel  to  Market  and  Mission  Streets  must  be  used 
more  for  the  relief  of  these  most  important  thoroughfares,  for  the 
diversion  of  traffic  to  Mission  Street  would  eventually  reproduce 
present  Market  Street  congestion  there  unless  some  of  the  present 


108 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


TRAFFIC  AND  SERVICE 


109 


«\  ! 


i 
If  < 


FIGURE  25— DIAGRAM   OF  PASSENGER   FLOW   OUTBOUND   FROM   BUSINESS 

DISTRICT   DURING   EVENING   RUSH   HOUR. 

This  record  is  based  upon  a  composite  traffic  count  of  the  entire  city  at 
throats  of  heaviest  travel.  The  relative  widths  of  lines  indicate  graphically 
the  proportionate  volume  of  travel  over  the  various  outbound  thoroughtares, 
also  the  progressive  decrease  in  load  toward  the  outer  termmi.  Numbers 
indicate  actual  volume  of  travel  at  various  throat  points.  Note  the  compara- 
tively small  usage  of  thoroughfares  south  of  Mission  Street  and  small  vol- 
ume of  travel  toward  the  Ferry.  Third  and  Kearny  Streets  are  considered  as 
the  dividing  line  of  travel  city-bound  and  Ferry-bound,  respectively. 


Mission  Street  traffic  were  diverted  still  further  to  the  south.  As 
Howard  Street  is  the  only  low-grade  parallel  artery  that  may  be  re- 
served for  heavy  vehicle  traffic,  Folsom  Street  must  ultimately  be 
pressed  into  further  use  for  traffic  to  and  from  the  Mission. 

Total  Rush-Hour  Travel,  A  summary  of  observations  on  all 
these  various  outbound  routes,  Table  22,  shows  that  for  a  typical 
composite  business  day,  48,659  passengers  traveled  homeward  on 
the  surface  cars  during  the  maximum  rush  hour  period — 5  to  6 
p.  m.  Of  this  total,  42,370  or  about  87%  were  handled  by  the 
electric  Hues,  and  less  than  13%  by  the  cable  lines;  and  40,821 
or  about  84%  represents  city-bound  traffic,  the  balance  or  16% 
representing  trans-bay  commuter  traffic  to  the  Ferry  terminal. 
Of  the  42,370  passengers  traveling  on  the  electric  lines,  the  Mar- 
ket Street  lines  carry  11,722  per  hour,  or  27.6%,  Mission  Street 
lines  6,435  or  15.1%,  and  the  Sutter  Street  lines,  3,586  or  8.4%.. 
The  heaviest  cable  line,  Powell  Street,  carries  less  than  1,500  pas- 
sengers per  hour,  which  slightly  exceeds  the  travel  on  Jones-Hyde 
cable  line.  Thus  the  smallest  cable  cars  of  the  system  are  called 
upon  to  handle  the  heaviest  rush  hour  travel,  although  least 
adapted  for  excess  loading. 

In  addition  to  this  street  railway  travel,  the  ferries  carry  the 
following  commuter  travel  during  the  maximum  evening  rush  hour : 

r^  „.  ^-v    ,  ,  P^*"  Hour 

Commuter  traffic  to  Oakland,  Berkeley  and  Alameda 12,480 

Marin  County 1 730 

Total  trans-bay  14,210 

Deduct  city  travel  to  Ferry 7,838 

Pedestrian  commuters  to  Ferry 6,372* 

Add  city-bound  travel 40,821 

Grand    total   outbound    passengers,   exclusive   of   com- 
muters walking  to  railroad  depot^ 55,031 

Throat  or  Cordon  Counts,  Data  for  the  throat  or  cordon 
counts  comprised  in  the  totals  presented  above  were  obtained  by 
stationing  observers  at  the  various  points  of  maximum  loading  on 
each  of  the  outlet  throats  of  travel.  (Table  21.)  The  resulting 
records,  shown  for  convenience  in  graphical  form,  indicate  not 
only  the  fluctuations  in  traffic  within  various  periods  of  the  hour 

\x  *w  ^^'^^  ^^^l  S.?"''*'  *  ^ounx  of  pedestrians  was  made  by  the  Traffic  Bureau,  at 
ItJa  OA,r}\^i^^  and  The  Embarcadero,  which  showed  5,000  persons  using  the  north  side, 
ana  ^.^10  the  south  side  of  Market  Street  between  S  and  6  p.m.,  or  7,410  person*  total 
through  the  Market  Street  throat. 

tAbout  560  persons  walk  to  the  depot  during  rush  hour. 


11 


no 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


I 


f      T 


111 


(Fig  24)  and  the  relative  loading  of  cars  with  respect  to  the  seat- 
ing capacity  (Fig.  26),  but  also  the  comparative  regularity  of  cars 
on  schedule.  (Plate  7.)  Thus,  for  the  Market  Street  throat  at  Mc- 
Allister Street,  cars  passed  at  an  average  of  28  seconds  headway, 
with  only  two  or  three  delays  between  cars,  the  maximum,  r45" 
duration. 

The  wide  variation  in  passengers  carried  per  car  is  in  fact  a 
peculiarity  of  riding  habit,  rather  than  due  entirely  to  irregularity 
of  headway.  There  will  be  noted  in  Plate  7  two  crests  of  travel : 

First — From  five  o'clock  shoppers  and  office  employees;  and 
Second — From  the  closing  of  business  at  5 :30  p.  m. 

Individual  loads  occasionally  appear  extreme — in  several  cases 
as  high  as  150  passengers  per  car  of  44  seats  seating  capacity; 
and  this  represents  passengers  actually  on  the  car  at  one  time, 
rather  than  the  total  aggregate  fare  registration  at  the  end  of  the 
trip  which  might  result  from  multiple  riding. 

In  contrast  to  this  outbound  Market  Street  throat,  the  out- 
bound traffic  to  the  Ferry  is  exceedingly  light — for  the  most  part 
below  seating  capacity.  Only  two  peaks  occur — shortly  after  5 
and  5  :30  p.  m.  As  previously  pointed  out,  this  is  due  to  the  walk- 
ing habit  of  trans-bay  commuters. 

The  Mission  Street  throat,  observed  at  Tenth  Street,  shows  a 
very  excessive  peak  for  five  o'clock  traffic,  and  great  irregularity 
in  headway.  This  irregularity  has  been  confirmed  by  other  ob- 
servations of  terminal  arrivals  and  departures  at  the  Ferry. 

These  Mission  lines  undoubtedly  show  the  heaviest  loading  of 
cars  of  any  of  the  lines  of  the  city,  and  on  such  lines  as  "24th  & 
Hoffman"  the  equipment  is  least  adapted  to  care  for  this  excessive 
loading.  With  an  average  headway  of  51  seconds,  delays  were 
recorded  of  3'30"  duration,  which  resulted  in  a  maximum  load  as 
high  as  185  passengers  for  a  44-seat  car.  This  is  all  the  more 
pronounced  in  view  of  the  fact  that  when  the  Mission  Street  cars 
are  uniform  in  headway,  the  fluctuations  in  loading  due  to  riding 
habit  are  not  nearly  as  sudden  as  on  Market  Street. 

The  Sutter  Street  throat,  counted  at  Polk  Street,  showed  fair 
uniformity  with  maximum  loads  of  about  100  passengers  when  no 
delays  occurred,  or  125  with  delays  of  3'45",  and  with  no  pro- 
nounced 5  o'clock  and  5  :30  peak.  This  throat  approximated  more 
nearly  a  proper  standard  of  service  than  any  other  lines  of  the 

city. 

The  California  Street  count  shows  a  remarkable  uniformity  in 
riding  habit  that  can  only  be  explained  by  its  having  an  individual 
patronage,  and  it  is  the  best  example  of  the  suppression  of  violent 
rush  hour  peaks  as  the  result  of  uniform  headway.  •  The  rush  hour 


TRAFFIC  AND  SERVICE  ^  ^  ^ 

loading  standard  is  easily  within  the  limits  of  comfortable  standing, 
as  defined  above,  although  it  is  to  be  said  that  standing  contmues 
for  the  entire  length  of  the  line,  whereas  on  the  longer  electric 
lines,  standing  does  not  continue  beyond  one-half  or  two-thirds  of 

^  The  traffic  on  Geary  Street,  just  before  the  replacement  of  the 
cable  line,  indicated  in  some  respects  a  similar  uniformity  m  patron- 
age throughout  the  rush  hour  and  with  somewhat  lighter  loading 
than  California  Street. 

The  Powell  Street  cable  line,  on  the  other  hand,  shows  a  ten- 
dency toward  two  peaks  during  the  rush  hour,  as  in  the  case  of  the 
electric  lines,  and  with  a  tendency  toward  irregularity  in  headway, 
which  results  in  exceeding  the  comfortable  standing  capacity. 

Cross-town  lines,  such  as  Polk  Street  and  Fillmore  Street,  show 
only  one  crest  of  travel  during  the  hour,  generally  following  the 

five  o'clock  load. 

The  general  deductions  from,  these  records  are  that  the  most 
prolific  cause  of  overloading  is  irregularity  of  headway.  It  is  un- 
questionably the  fact  that  during  the  time  these  counts  were  taken 
considerable  delays  were  encountered  on  the  Mission  Street  thor- 
oughfare, due  to  the  excessive  heavy  vehicle  traffic  that  had  to 
be  diverted  from  Howard  Street  to  Mission  Street  during  the  in- 
stallation of  the  sewer,  making  Howard  Street  impassable.  But 
at  this  time,  the  Police  Traffic  Squad  started  in  its  work,  and  the 
traffic  congestion  would  probably  have  been  worse  on  both  Market 
and  Mission  Streets,  had  it  not  been  for  the  police  regulation,  which 
has  given  most  beneficial  results. 

To  emphasize  this  point  of  delays,  it  is  only  necessary  to  con- 
sider the  effect  on  waiting  patrons  of  the  following  observed  de- 
partures from  uniform  headway  on  some  of  the  lines  during  the 
rush  hour: 

Line  Departure.         Headway  %  Off 

McAllister  3'18"  2'30"  132.0 

Haiffht    3'15"  ZOCr  162.5 

Valencia    3'15"  rOOT  162.5 

Market  3'15"  2W  162.5 

Ingleside    6'30"  6'00"  108.3 

Twenty-fourth  and  Mission 8'30"  2'30"  340.0 

Bryant            2'S3"  4'00"  72.0 

Kentucky '.' 3'30"  4'00"  87.0 

Kearny  and  Beach 4'15"  4W  106.0 

Ellis   and   Ocean 2'00"  2W'  100.0 

Compare  the  above  with  California  Street  cable  line  and  Sutter 
Street : 

Line  Departure.        Headway  %  Off 

Sutter      I'OO"  2'00^  50.0 

California    1'30"  2^30"  60.0 


112 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


TRAFFIC  AND  SERVICE 


113 


(   ; 


Ul    I  I' 


Ni  I 


i 


li 


It  should  be  said  here  that  the  character  of  some  of  the  equip- 
ment on  Mission  Street  is  least  suited  to  the  handling  of  these  ex- 
cessive crests  of  travel.  And  the  first  steps  toward  the  improve- 
ment of  service  should  be  taken  on  these  lines,  rather  than  on  lines 
such  as  Sutter  Street,  where  the  conditions,  relatively  speakine 
are  not  nearly  as  serious.  '  j     f         &• 

Load  Distribution  Along  Route.!  o  illustrate  the  reason  for 
the  selection  of  the  points  of  traffic  counts  listed  in  Table  21    it 
IS  only   necessary   to   refer   to   loading   curves   for  typical   rouies, 
Mg.  3 A  which  show  progressive  loading  and  unloading  from  ter- 
minal to  terminal.     Here  it  will  be  noticed  that  maximum  travel 
u"""  °". 'he  various  routes  at  a  di.stance  from  the  origin  which 
has  very  little  bearing  upon  the  location  or  the  length  of  the  route 
but  rather  reflects  the  peculiarities  of  the  riding  habit.     On  this  ac- 
count, all  throat  counts  have  been  checked  at  points  of  maximum 
loading  with  reference  only  to  actual  trip  records 

This  diagram.  Fig.  39,  is  designed  to  show  the  relative  loading 
at  various  pomts  of  the  line  with  respect  to  the  maximum  onlv 
and  irrespective  of  the  actual  number  of  persons  on  the  car  It 
may  therefore  be  called  the  route  chcraeteristic  curz-e  applicable 
to  all  rush  hour  cars.  These  records  have  been  obtained  for  all  lines 
and  are  interpreted  in  the  "Rerouting"  chapter. 

Analysis  of  Service 

The  relative  degree  or  quality  of  service  is  best  expressed  by 
ratio  between  seats  furnished  and  total  passengers  carried  at  the 
maximum  loading  points.  It  has  already  been  stated  that  if  this 
average  car  loading  is  analyzed  by  diflFerent  periods  shorter  than 
one  hour  the  relative  loading  appears  much  higher  than  the  aver- 
age for  the  hour.  In  the  accompanying  analysis.  Table  2i,  the  per- 
centages are  obtained  for  15  minutes  and  30  minutes,  as  well  as 
for  60-minute  periods,  since  the  use  of  as  short  a  period  as  15  min- 
utes is  impracticable  on  lines  of  very  long  headway,  as  average 
conditions  would  not  result;  but  this  period  is  not  too  short  for 
lines  of  heavy  traffic. 

Rush  Hour.  Taking  the  hourly  basis,  it  was  found  that  the 
average  loading  for  all  lines  of  city-bound  passengers  onl,  was 
138/c,  t  e.,  58%  excess  passengers  over  seats;  or  for  everv  100 
seats  outbound  there  were  58  passengers  forced  to  stand.  For  the 
electric  lines  only,  the  corresponding  loading  was  159%  and  for 
the  cable  lines  156%  of  the  seating  capacity 

These  figures  give  due  credit  to  the  operating  company  for  all 
unoccupied  seats-that  is,  they  recognize  the  standing  iy  prefer- 


ence,  due  to  the  fact  that  many  people  stand  even  with  seats  vacant, 
as  has  been  previously  explained.  This  standing  by  preference  is 
rarely  credited  to  the  companies  in  the  consideration  of  service 
standards. 

If  the  transbay  traffic  to  the  Ferry  be  included,  the  average 
loading  for  the  system  is  then  reduced  to  131%,  due  to  the  fact 
that  the  Ferry-bound  traffic  is  relatively  light,  averaging  for  the 
hour  only  69%  of  the  seating  capacity,  i.  e.,  one-third  more  seats 
than  passengers.  But  it  is  not  deemed  proper  to  include  in  the 
final  analysis  this  transbay  commuter  traffic  to  the  Ferry,  for  the 
reason  that  it  is  handled  almost  entirely  on  inbound  cars  and  has 
no  bearing  on  the  outbound  city  service. 

It  is  necessary  to  state  here  that  the  above  percentage  load- 
ings, while  apparently  fair  considered  on  the  rush  hour  basis,  are, 
in  reality,  entirely  too  high.  It  has  already  been  pointed  out  that 
the  ratio  between  rush  hour  and  base  midday  schedule  indicated 
too  low  a  rush  hour  service  standard.  These  throat  counts  fully 
confirm  this  conclusion.  In  modern  urban  transportation,  where 
the  rush  hour  load  much  exceeds  133%  of  the  seating  capacity 
on  an  average,  excessive  standing  results.  Here  the  rush  hour  aver- 
age of  city-bound  traffic  is  158%,  or  nearly  20%  higher. 

Analysis  by  Periods.  The  serious  nature  of  the  existing 
service  on  some  of  these  important  lines  will  be  apparent  from  the 
following  comparison  of  loading  percentages: 

Maximum         Maximum 
Trunk  or  Routes.  Full  Hour.  Half-hour.     Quarter-hour. 

Market   Street    206  215  232 

Mission  Street   212  230  235 

Sutter  Street 190  194  204 

Folsom  Street    144  180  194 

Turk  and  Eddy 171  180  188 

Mission  and  Twenty-fourth 230  262  270 

Cemeteries   222  241  271 

These  relations  are  more  striking  when  shown  graphically  for 
successive  15-minute  periods.  (Fig.  26.)  The  maximum  crest 
of  travel  clearly  occurs  in  the  second  period  for  city  travel  only, 
while  travel  to  the  Ferry  decreases  steadily  after  five  o'clock. 

Carrying  this  analysis  to  a  finality,  i.  e.,  to  single  cars,  it  is 
found  that  extremely  severe  loading  occurs  on  many  lines  to  an 
extent  of  which  the  usual  operating  records  available  give  no  indi- 
cation. For  example,  23  trips  on  various  routes  showed  over  200% 
loading,  three  trips  over  300%  and  one  as  high  as  383% 
loading.  However,  individual  trips  cannot  be  taken  as  a 
fair  basis  for  computing  service  standards  unless  in  conformity 
with  the  average  record  of  the  period. 


114 


SAN  FEt\NCISCO  TRANSPORTATION  FACILITIES 


■ION  J.  ARNOLD 


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FIGURE    26— VARIATION    IN    SERVICE    STANDARDS    DURING    RUSH    HOUR 

ON  IMPORTANT  THROATS. 

This  diagram  records  the  average  service  by  fifteen-minute  periods  ex- 
pressed in  per  cent  of  passenger  load  to  seats  furnished — ».  e,,  all  above  100% 
represents  standing.  This  record  covers  every  line  operating  out  of  the  busi- 
ness district,  and  represents  the  average  condition  on  about  600  cars  operat- 
ing therein  during  the  rush  hour.  It  summarizes  in  concrete  figures  the  ser- 
vice standard  in  San  Francisco  for  July,  1912.  Since  then  traffic  has  steadily 
increased. 


TRAFFIC  AND  SERVICE 


115 


Check  on  Conductors'  Records.  The  above  mentioned  dis- 
parity between  the  records  of  the  operating  department  and  those 
found  by  actual  count  may  largely  be  accredited  to  the  fact  that 
it  is  a  physical  impossibility  for  any  conductor  to  keep  an 
accurate  record  of  passengers  or  fares  where  continued  car  load- 
ing as  excessive  as  that  enumerated  above  is  encountered.  And 
here  exists  the  most  forcible  argument  for  the  installation  of  the 
prepayment  principle  on  all  lines. 

To  make  sure  of  results,  as  many  as  five  observers  were  sta- 
tioned on  the  non-prepayment  cars  of  both  double-truck  and  sin- 
gle-truck type.  These  counts  showed  the  following  missed  fares 
or  passengers  missed  by  the  conductor  on  a  single  trip : 

1  line  was  90  passengers  short; 
4  lines  were  50  passengers  short; 
8  lines  were  25  passengers  short; 
13  lines  were  10  passengers  short. 

Thus,  in  one  case,  the  Kentucky  Street  line,  during  a  typical 
rush  hour  period,  38%  of  the  total  registration  was  missed  on  a 
single  car  trip.  In  comparison  therewith,  only  two  prepayment 
lines  showed  10  passengers  or  over  missed  by  the  conductor,  the 
average  being  four  or  five,  and  in  these  two  cases,  the  excessive 
crowding  on  the  rear  platform  (which  is  against  the  rules  of  the 
Company)  prevented  the  conductor  from  reaching  the  passengers 
clinging  to  the  rear  step. 

It  is  therefore  deemed  unquestionable  that  the  prepayment 
car  has  served  a  most  useful  purpose  in  securing  the  proper  income 
that  should  be  derived  from  the  passenger  traffic  handled,  which 
should  not  be  considered  for  the  sole  purpose  of  increasing  divi- 
dends, as  often  considered,  but  also  for  the  purpose  of  securing 
from  this  justly  increased  revenue  the  additional  car  service  made 
possible  thereby. 

New  Equipment.  For  the  purpose  of  a  rough  comparison,  it 
is  estimated  that  the  addition  of  the  65  cars  now  under  construc- 
tion for  the  United  Railroads  will  effect  a  reduction  in  the  rush 
hour  loading  of  outbound  city  traffic  from  158%  to  about  138%. 
Thus,  this  new  equipment  will  hardly  suffice  to  bring  about  a 
proper  service  standard  for  the  present,  to  say  nothing  of  demands 
of  the  future  or  of  the  Panama-Pacific  Exposition  in  1915. 

The  exact  computations  of  additional  service  required,  how- 
ever, should  be  made  upon  a  standard  car-mile  or  seat-mile  basis, 
which  automatically  compensates  for  wide  variations  in  length 
and  speed  of  various  routes.  Detailed  recommendations  upon  this 
subject  will  be  made  in  Chapter  7 — "Rerouting  and  Service  Redis- 
tribution." 


1  1 6  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


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FIGURE    27  -FLOW    OF    VEHICLE    TRAFFIC,    MARKET    STREET. 

Results  of  vehicle  traffic  count  at  Fourth  and  Market  Streets,  showing 
graphically  the  volume  and  complexity  of  traffic  flow  at  a  typical  congested 
center;  also  the  necessity  of  efficient  traffic  regulation.  Market  Street  traffic 
clearly  should  have  preference  over  transverse  traffic.  While  vehicle  trattic 
at  this  time  was  maximum,  car  traffic  is  50%  higher  during  rush  hours. 


Ul 


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CHAPTER  6 

RELIEF  OF  TRAFFIC  CONGESTION  ON 
LOWER  MARKET  STREET* 

Methods  of  Operation 
Development  of  Four-track  Operating  Plan 

The  peculiar  street  la'^out  of  San  Francisco,  b\f  Jvhich  all  of  the  Wtsi- 
ern  Addition  streets  branch  from  Market  Street,  and  the  absence  of  any 
parallel  thoroughfares  to  the  north,  naturally  result  in  extreme  congestion 
of  the  one  important  artery.  Furthermore,  the  present  methods  of  car 
operation  cannot  provide  maximum  capacity  jvith  minimum  congestion. 
In  this  chapter,  traffic  conditions  are  analyzed  and  various  methods  for 
relief  are  recommended  in  detail,  covering  that  portion  of  lower  Market 
Street  from  McAllister  Street  to  The  Embarcadero.  Chapter  13  de- 
velops the  necessities  of  the  Ferry  terminals  and  their  reconstruction  and 
enlargement. 

In  perfecting  plans  for  the  relief  of  lower  Market  Street,  dis- 
tinctly shown  to  be  so  necessary  in  the  preceding  study  of  the 
downtown  district,  consideration  has  been  given  herein  to  the  fol- 
lowing subjects:  Traffic  regulation;  car  and  passenger  distribu- 
tion ;  location  and  sources  of  transit  delays ;  street  capacity ;  loading 
speed;  physical  obstructions;  intersecting  lines;  arrangement  of 
tracks;  safety  stations;  assignment  of  stops,  present,  proposed  and 
alternative;  shelters. 

From  the  above,  it  will  be  observed  that  this  report  relates  to 
the  physical  conditions  and  the  operative  problems  only,  and  has  no 
bearing  whatever  upon  any  question  of  franchises  or  litigation  in- 
volving the  outer  tracks  in  lower  Market  Street. 

RECOMMENDATIONS 

1.  Encourage  and  extend  the  work  of  the  traffic  force. 

2.  Reserve,  for  heavy  vehicle  traffic,  one  street  through  the  Mis- 
sion parallel  to  Market  Street,  and  one  or  more  crossing  Market 
Street  through  the  wholesale  district. 

3.  Right-of-way  should  be  determined  by  relative  amount  of 
pedestrian  and  car  traffic  at  important  intersections. 

4.  Reduce  car  traffic  crossing  Market  Street  throat  during  rush 
hours  to  a  minimum,  e.  g.,  at  First  Street. 

•Formerly   Preliminary    Report   No.    6,    submitted   Oct.    30,    1912. 


\ 


1 1! 


1 1 8  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

5.  Average  loading  speed  of  cars  must  be  increased. 

6.  Use  both  ends  of  the  cars  at  the  Ferry  for  loading  at  least 
during  periods  of  maximum  travel. 

7.  Rearrange  safety  stations  with  seats  elsewhere  than  opposite 
entrances  and  exits. 

8.  Extend   stations   to   accommodate   two   cars   at   designated 
points  of  heavy  travel. 

9.  At  the  heaviest   traffic    points— Third    Street    and    Fourth 
Street— two  cars  should  berth  and  cross  together,  tandem  fashion. 

10.  Establish  only  "near  side"  stops  on  electric  lines  within  the 

business  district. 

11.  Distribute  stops  as  uniformly  as  possible  to  permit  rapid 

running. 

12.  Eliminate  as  many  unnecessary  or  special  stops  as  may  be 
consistent  with  the  varying  local  demands  of  passenger  travel. 

13.  Out-bound  stations  are  more  necessary  than  in-bound;  the 
latter  are  only  required  within  districts  where  Ferry  travel  originates. 

14.  Avoid  out-bound  and  in-bound  stations  located  in  opposite 

position. 

15.  Designate  all  stopping  points  definitely  by  fixed  signs. 

16.  No  considerable  increase  in  the  use  of  the  inner  tracks  on 
Market  Street  can  be  recommended  under  present  conditions  and 

routing. 

17.  Use  of  outer  tracks  should  be  limited  to  preserve  the  proper 

ratio  of  car  traffic  on  inner  and  outer  tracks.     Minimum  headway 

45  seconds.  . 

18.  Four-track  plan  A,  best  suited  to  immediate  needs,  is  recom- 
mended. 

19.  Establish  definite  rules  for  stops  with  regard  to  cars  passing 

on  parallel  tracks. 

20.  Commence  proceedings  for  the  recession  of  the  protruding 
corner  of  Sacramento  and  East  Streets. 

21.  Water-front  terminal  will  require  modification  to  better  ful- 
fill the  fluctuating  demands  of  ferry  traffic. 

GENERAL  DISCUSSION 

Traffic  Regulation.  The  plans  which  the  Police  Depart- 
ment put  into  effect  throughout  the  congested  district  under  the 
supervision  of  the  traffic  force,  I  consider  to  be  most  important, 
and  should  be  heartily  encouraged  by  all  your  citizens  as  one  effec- 
tive means  of  reducing  the  traffic  congestion  on  lower  Market 
Street.       The  appended  diagram,  Figure  27,  representing  graphi- 


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^ 


RELIEF  OF  LOWER  MARKET  STREET 


119 


cally  the  present  conditions  at  a  typical  congested  intersection — 
Fourth  and  Market  Streets— will  give  an  idea  of  the  complexity  of 
vehicle  routing,  with  which  street  transportation  companies  have  to 
contend.  This  will  also  illustrate  the  necessity  for  the  institution  of 
the  traffic  signal  at  such  intersections,  in  order  to  permit  the  most 
rapid  interchange  of  vehicles  by  selective  routing,  I  understand 
that  the  installation  of  the  selective  signal  will  be  extended  to  all 
the  more  congested  intersections  along  Market  and  Mission 
Streets,  and  to  other  important  intersections,  such  as  Kearny  and 
Sutter  Streets,  and  I  believe  that  such  a  system  will  result  in  maxi- . 
mum  benefit,  as  has  been  proved  in  other  large  cities. 

I  am  informed  that  before  the  traffic  force  was  organized, 
there  were  approximately  1,600  vehicles  per  hour  observed  crossing 
at  Fourth  and  Market  Streets,  and  that  fully  70  per  cent  of  the 
vehicles  using  Market  Street  were  "empties,"  a  great  majority  of 
which  were  found  upon  this  street  not  by  reason  of  necessity  but 
purely  by  preference.  As  a  result  of  the  operations  of  the  traffic 
force,  the  number  of  vehicles  intersecting  at  this  location  had  been 
reduced  to  less  than  1,000  by  actual  count  in  the  early  part  of  1912. 
The  appended  diagram  shows  984  vehicles,  exclusive  of  street  cars. 
Fortunately  this  vehicle  traffic  is  somewhat  less  during  the  evening 
rush  hours  than  during  midday,  so  that  the  increase  in  car  traffic 
is  a  little  less  serious  than  if  vehicle  traffic  also  increased  propor- 
tionately thereto.  » 

On  account  of  the  unavoidable  necessity  of  utilizing  Market  and 
Mission  Streets  primarily  for  passenger  travel,  it  will  be  desirable 
for  you  to  reserve  as  far  as  possible  for  vehicle  traffic  one  street 
parallel  thereto.  Howard  Street  is  the  natural  choice,  and  I  am 
pleased  to  confirm  the  selection  of  this  street  by  your  traffic  force 
for  this  purpose.  By  the  general  use  of  Howard  Street  as  the  main 
trucking  thoroughfare  from  The  Embarcadero  to  the  business  cen- 
ter, traffic  conditions  will  be  improved,  as  soon  as  the  construc- 
tion work  being  carried  on  upon  this  street  is  completed.  The 
perfection  of  the  work  of  the  traffic  force  should  be  encourage^  in 
every  possible  way  by  both  pedestrians  and  teamsters.* 

Similarly,  Battery-First  Streets  and  Front-Fremont  Streets 
should  be  reserved  as  far  as  possible  as  trucking  thoroughfares,  in 
order  to  relieve  Montgomery  Street,  which  is  extremely  narrow,  and 
Kearny-Third  Streets,  which  are  indispensable  for  passenger  and 

car  traffic. 

The  Embarcadero  should  be  improved  and  maintained  in  the  best 
possible  condition  so  as  to  encourage  its  use  for  the  heavier  truck- 
ing.    And  in  this  connection,  the  recent  action  of  your  Board  in  tak- 

♦This  reservation  of  Howard   Street  is  only  necessary  as  far  as  the  business  center; 
beyond  Fifth  Street  it  is  required  for  routing  important  car  traffic. 


i 


120 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


I 


■ION  J.  AMNOLO 


B  H 


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It  *    ' 


FIGURE  28— CAR  CONGESTION,   LOWER   MARKET   STREET. 

Graphical  study  of  car  delay  showing  where  the  congestion  occurs  along 
Market  Street,  as  indicated  by  the  slowing  of  the  schedule.  Note  the  hump 
between  Sutter  and  McAllister  Streets — minimum  speed  3.2  miles  per  hour. 
This  represents  average  results  from  160  cars  counted  during  a  typical  evening 
rush  hour. 


RELIEF  OF  LOWER  MARKET  STREET 


121 


ing  steps  to  open  Berry  Street  deserves  commendation  as  a  means 
of  facilitating  this  plan  of  diverting  all  unnecessary  vehicle  traffic 
from  the  congested  intersections  along  Market  and  Mission  Streets. 

Car  Distribution.  The  location  of  centers  of  congestion 
can  be  shown  very  accurately  by  observation  under  heavy  traffic. 
Typical  conditions  now  existing  during  the  evening  rush  hour  along 
Market  Street  are  represented  by  the  appended  diagram,  Figure  28, 
and  the  following  data  obtained  therefrom  by  averaging  the  running 
time  of  160  cars  out-bound  from  the  Ferry  between  4:30  and 
6:00  p.  m.  These  conditions  were  perhaps  slightly  aggravated  by 
the  construction  work  in  progress  on  Howard,  Second,  and  Market 
Streets ;  but,  nevertheless,  they  are  liable  to  occur  at  any  time  when 
congestion  is  not  promptly  controlled. 

Total       Speed,       Cars       Dis- 
Outbound  Run  Time        Running      Miles         on         tance 

Interval         Time       Per  Hr.    Street     Feet 

Ferry  to  Sansome  ( Sutter) 5'59"  5'59"  5.7  17  2660 

Sansome  to  Kearny  (Third)    4'20"  10'19"  3.2  12  2  0 

Kearny  to   Stockton   (Fourth)    3'11"  13'30"  4.3  5  1210 

Stockton  to  McAllister   (Sixth)    3'41"  17'10"  6.4  8  2^ 

McAllister  to  Haight   (Valencia)    4'29"  21'39"  10.7  4220 

Haight  to  Castro  and   Eighteenth 7'14"  28'53"  9.4  6010 

Total    17390 

Average  speed,  Ferry  to  Eighteenth  Street,  6.86  miles  per  hour. 

In  the  most  congested  run,  from  Sansome  to  Kearny  Streets, 
there  was  an  average  car  spacing  of  about  100  feet,  or  only  about 
twice  the  length  of  a  standard  car.  The  crux  of  the  problem  is 
to  be  found  at  Lotta's  Fountain— Third,  Kearny  and  Geary  Streets 
—where  both  Market  Street  tracks  are  crossed  by  the  Third  and 
Kearny  lines.  Here  the  delays  occasioned  by  crossings  are  ag- 
gravated to  the  maximum  degree  by  reason  of  the  concentration  of 
passengers  zmthin  so  limited  an  area,  especially  during  the  evening 
rush  hour.  This  has  the  effect  of  slowing  the  entire  schedule  for 
some  distance  back.  To  a  somewhat  less  degree  the  Fourth-Stock- 
ton and  Market  Street  crossing  is  also  responsible  for  considerable 
congestion,  and  it  appears  that  the  capacity  of  Market  Street  is 
practically  dependent  upon  and  determined  by  the  condition  of  these 
two  congested  crossings.  It  will  be  observed  that  the  out-bound 
tracks  are  comparatively  clear  as  far  as  Sansome  Street,  which  is  ex- 
tremely fortunate,  in  view  of  the  proposed  extension  of  the  Sut- 
ter Street  service  to  the  Ferry,  thus  relieving  also  the  proposed 
Geary  Street  extension  to  the  Ferry. 

Car    Capacity.      The  carrying  capacity  of  the  Market  Street 
throat   has   been    determined   by   numerous   observations   made    at 


i 


It    i 


it 


122 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Market  and  Powell  Streets.  These  counts  indicate  that  on  the  aver- 
age about  127  cars  pass  out  of  the  Market  Street  throat  per  hour, 
which  corresponds  to  about  28  seconds  average  headway.  From 
computations  made  upon  standard  equipment  of  the  same  type  un- 
der efficient  operating  conditions,  I  believe  this  headway  is  very 
close  to  the  minimum  that  ought  to  be  considered  for  the  inner 
Market  Street  tracks,  for  the  reason  that  the  several  short-haul 
lines  that  use  Market  Street  have  little  or  no  opportunity  to  recover 
by  fast  running  outside  of  the  business  district,  and  the  beneficial 
results  from  traffic  regulation  and  other  improvements  hereafter  con- 
templated ought  to  be  reserved  for  the  improvement  of  the  present 
running  speed,  which  is  extremely  low.  This  standard  equipment 
is  capable  of  operating  most  efficiently  at  a  minimum  headway  of 
only  about  22  seconds  or  thereabouts  on  a  level  unobstructed  track, 
assuming  a  10-second  loading  stop  every  440  feet.  (Equivalent 
to  an  average  city  block,  or  12  stops  per  mile.)  This  headway, 
equivalent  to  163  cars  per  hour,  represents  about  the  maximum  clear 
capacity  of  the  tracks. 

The  additional  cars  from  the  Geary  and  Sutter  Street  lines  as 
contemplated  would  increase  the  total  outflow  from  the  Market 
Street  throat  at  Sutter  Street  to  about  192  cars  per  hour,  assum- 
ing a  two-minute  headway  during  rush  hours  on  the  Geary  Street 
line.  In  the  present  four-track  plan,  63  per  cent  of  the  equipment 
would  have  to  be  handled  on  the  inner  tracks,  i.  e.,  from  Geary 
Street  to  the  Ferry  there  would  be  found  28  out-bound  cars*  on  the 
inner  tracks  and  13  on  the  outer  tracks.  Were  the  Sutter  Street 
cars  to  be  operated  on  the  inner  tracks  there  would  result  163  cars 
per  hour  out-bound  thereon  during  the  rush  hour.  As  this  is  about 
the  theoretical  capacity  of  the  equipment,  it  is  obviously  impossible 
of  consideration.  Therefore,  even  under  improved  conditions  an- 
ticipated for  the  near  future,  I  cannot  recommend  any  considerable 
increase  of  the  use  of  the  inner  tracks  by  any  more  cars  than  at 
present  operated.  And  if  running  conditions  cannot  be  greatly  im- 
proved now,  the  establishment  of  service  on  the  outer  tracks  will 
only  increase  rather  than  decrease  the  difficulties  of  operation.  As  a 
result,  it  is  entirely  within  the  bounds  of  possibility  that  in  the 
near  future  it  may  be  found  necessary  under  four-track  operation 
to  reduce  the  number  of  cars  utilizing  both  the  inner  and  the  outer 
tracks  by  diverting  parts  of  some  tributary  routes  to  adjacent  thor- 
oughfares; or  else,  this  could  be  accomplished  by  turning  backf  a 
certain  proportion  of  the  rush  hour  extra  cars  on  all  north-side  lines 
converging  into  Market  Street,  as  is  now  done  on  the  Turk  and 


•By  actual  count. 

tDefinite  recommendations  for  the  proper  handling  of  this  rush  hour  short-haul  traffic 
will  be  found  in   Chapter  7   on   Rerouting  and  Service  Redistribution. 


RELIEF  OF  LOWER  MARKET  STREET 


123 


Eddy  line  during  rush  hours,  this  being  done  to  remove  from  Mar- 
ket Street  the  additional  equipment  operated  solely  for  the  handling 
of  the  large  volume  of  business  traffic  originating  in  the  central 
loading  district.  In  any  event,  there  should  be  no  attempt  to 
equalize  the  traffic  on  the  inner  and  outer  tracks.  Owing  to  the 
handicap  to  the  inner  tracks,  the  number  of  cars  using  the  outer 
tracks  should  be  kept  at  a  minimum  and  not  exceed  about  38  per 
cent  of  the  total  cars  using  the  Market  Street  throat.  The  necessity 
for  this  balancing  of  traffic  arises  from  the  fact  that  heavier  traffic 
on  the  outer  tracks  will  prevent  access  to  the  inner  tracks  and  in 
the  end  defeat  the  ultimate  purpose  of  the  entire  four-track  ar- 
rangement. 

Figures  34  and  35  referred  to  later,  indicate  the  relative  volume 
of  car  traffic  resulting  from  the  contemplated  use  of  the  outer 
tracks  by  two  proposed  methods. 

Passenger  Distribution.  The  above  observations  on  car  con- 
gestion are  confirmed  by  studies  of  the  distribution  of  out-bound 
passengers  along  Market  Street  as  determined  by  numerous  obs.er- 
vations.  These  show  that  the  heaviest  rate  of  loading  per  stop  be- 
gins at  Second  Street,  increasing  to  a  maximum  at  Third  Street, 
thence  decreasing  progressively.  As  the  time  of  loading  is  practi- 
cally proportional  to  the  volume  of  passenger  traffic,  every  possible 
means  of  relief  should  be  applied  to  this  section  of  the  Market 
Street  throat,  as  herein  recommended. 

RELATIVE  VOLUME  OF  TRAVEL 

Market  Street  Stations 

Out-bound  Average  Car,  Evening  Rush  Hour 

Boarding       Total 
Station  Only    On  and  Off 

Ferry  loop  12  12 

Drumm   (California)    6  6 

Battery-First  (Bush)    8  8 

Sansome  (Sutter)   8  10 

Second  Street 7  7 

Montgomery  ( Post)   14  16 

Kearnv-Third   (Geary) 25  26 

Grant  "(O'Farrell)    10  .  12 

Stockton-Fourth   (Ellis) 6  7 

Emporium-Flood    6  7 

Powell-Fifth  (Eddy) 12  17 

Mason  (Turk)  4  5 

Taylor-Sixth  (Golden  Gate) 4  5 

Jones  ( McAllister)   2  2 

Larkin-Ninth  ( Hayes)   3  5 

Church-Fillmore  (Fourteenth)   3  6 

Note  heavy  loading  at  Kearny  Street- 


!  I 


it  ''< 


1 24  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

Sutter  Street  Stations 

Out-bound  Average  Car,  Evening  Rush  Hour 

(Sutter-California,  Sutter-Clement,  Sutter-Jackson) 

Boarding    Alighting    Total 

30  ^ 

Sansome    j^  14 

Montgomery    2g  28 

Kearny g                 1  10 

Grant    ^  4 

Stockton    j5                  3  ig 

Powell    J                  2  3 

Mason   j  1 

Taylor    I  i 

Jones   2  2 

Leavenworth    £                 1  3 

Hyde    2  2 

Larkin    o                iq  18 

Polk   °                  1  1 

Van  Ness  ^                 2  3 

Franklin    j                 4  5 

Gough   5  5 

Octavia    1  1 

Laguna 4  4 

Buchanan \  \ 

Webster   g                19  27 

Fillmore   •  •, 1 '  *  *  1   \ 

(Sutter-California,  Sutter-Clement,  only)  2  7  9 

Divisadero   

North  Side  Traffic  Distribution.  Similar  o^-;-^^ 
ridinff  habit  on  north-side  lines  converging  into  Market  btreet 
further  confirm  the  statement  that  there  is  no  necessity  for  all  of 
the  north-side  cars  which  run  into  Market  Street  continuing  to 
the  Ferry  during  rush  hours.  The  above  results  from  traffic  counts 
on  Sutter  Street  will  illustrate  this  point.  These  results  show 
that  the  heaviest  rush  hour  loading  originates  west  of  Sansome 
Street  This  taken  in  connection  with  the  fact  that  Market  Street 
lines  do  not'  pick  up  their  heavy  outbound  loads  until  Second 
Street  or  Third  Street  is  reached,  proves  that  much  of  this  north- 
side  traffic  could  be  efficiently  handled  by  short-haul  tripper 
extras  looping  back  at  the  intersection  with  Market  Street.  This 
applies  equally  to  the  Geary  Street  and  Sutter  Street  lines,  and  it 
will  be  found  that  such  a  plan  will  not  only  save  car-miles  for  use 
on  that  part  of  the  line  where  needed,  but  will  also  automatically 
relieve  the  congestion  on  lower  Market  Street. 

Minimum  Headway.  Until  further  experience  has  been  ac- 
quired with  the  operation  of  this  contemplated  four-track  plan,  it 
appears  to  me  that  the  most  feasible  method  of  conserving  the  maxi- 
mum usefulness  of  all  the  tracks  on  Market  Street  is  to  place  a  limit 
on  the  number  of  cars  that  may  be  operated  thereon.  Consider- 
ing the  proper  proportion  of  traffic  between  inner  and  outer  tracks 
as  above  discussed,  I  believe  I  can  safely  recommend  that  an  aver- 


RELIEF  OF  LOWER  MARKET  STREET 


125 


age  headway  of  less  than  45  seconds  should  not  be  seriously  con- 
sidered for  the  outer  tracks — that  is,  80  car-trips  per  hour — as  com- 
pared with  the  present  headway  of  28  seconds,  or  127  car-trips 
per  hour,  on  the  middle  tracks.  This  applies  to  the  present  type 
of  motor  car  equipment  and  might  very  readily  change  if  more 
powerful  motor  cars  were  later  put  into  operation.  It  is  some- 
what uncertain  how  many  car-trips  per  hour  will  be  required  to 
the  Ferry  via  Geary  Street  especially  in  view  of  the  possibility 
of  additional  municipal  lines  desiring  to  use  the  Geary  Street 
and  outer  tracks.  But,  as  the  general  theory  upon  which  these 
outer  tracks  are  used  is  that  of  equal  participation  in  mainte- 
nance and  receipts,  I  should  consider  it  reasonable  that  the  Munici- 
pal and  the  United  Railroads  lines,  respectively,  should  be  permitted 
to  share  equally — that  is,  up  to  a  headway  of  90  seconds,  or  40  car- 
trips  per  hour. 

Obviously,  as  far  as  the  Market  Street  traffic  conditions  are 
concerned,  it  is  immaterial  what  routes  contribute  to  this  total  utili- 
zation of  the  outer  tracks,  but  it  is  important  that  the  respective 
operating  departments  of  the  tributary  systems  should  co-operate 
in  harmonizing  their  schedules,  in  order  to  secure  the  maximum 
resulting  service  for  the  patrons  from  the  Western  Addition. 
While  short-haul  routes  may  relieve  Market  Street  on  days  of  ex- 
ceptional travel  or  during  emergencies,  it  is  quite  likely  that  the 
utmost  use  of  both  outer  and  inner  tracks  would  be  demanded,  in 
which  event,  the  above-mentioned  minimum  headway  of  45  seconds 
could  be  somewhat  reduced  under  proper  authorization  from  the 
City,  but  such  permission  should  be  contingent  upon  close  co- 
operation of  the  respective  operating  departments  with  regard  to 
schedules  and  the  overlapping  of  authority  of  their  street  traf- 
fic inspectors. 

Loading  Speed.  Preliminary  observations  on  a  large  num- 
ber of  cars  indicate  that  the  average  speed  of  loading  in  seconds 
per  passenger  is  low,  unfortunately,  in  San  Francisco.  This  con- 
dition can  undoubtedly  be  remedied  by  certain  improvements  in 
platform  arrangements,!  but  nevertheless  the  results  indicate  that 
every  possible  facility  must  be  afforded  that  will  increase  the  load- 
ing speed,  especially  when  large  groups  of  passengers — 15  to  50  or 
60 — are  to  be  loaded  at  one  stop.  This  condition  becomes  most 
serious  at  the  Ferry  loop  terminal,  referred  to  later,  which  will 
require  special  treatment.  Here,  10  passengers  board  the  average 
car  during  the  morning  hours,  which  is  about  twice  as  many  as  for 
the  average  stop  along  Market  Street. 

tDiscussed  in  Chapter  9  on  Improvements  in  Existint;  Rolling  Stock. 


If. 


1 26  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


BION  J.  ARNOLD 


II 


m  I 


p  * 


11 


FULL    ENTRANCE- 


FIGURE  29-CbMPARATIVE  STUDY  OF  CAR  LOADING  SPEEDS. 

Showing  relative  time  consumed  per  passenger  for  various  types  of  cars 
includinjr  the  newer  Oakland  cars  with  movable  guide-rail.     The  average 
group  of  passengers  at  the  Ferry  and , on  Market  Street  was  determmed  by 
Ictual  observations.     This  clearly  indicates  the  superiority  of  the  Chicago 
standard  car  design. 


RELIEF  OF  LOWER  MARKET  STREET 


127 


The  extent  of  the  handicap  under  which  present  equipment  is 
being  operated  may  be  judged  from  the  fact  that  the  largest  San 
Francisco  cars,  for  groups  of  10  passengers,  require  about  27.5 
per  cent  more  time  per  passenger  to  load  than  the  latest  type  of 
car  operated  in  Oakland,  where  the  radius  rod  is  in  use  that  per- 
mits the  full  length  of  step  to  be  used  for  entrance.  Figure  29 
indicates  this  relation  graphically. 

One  immediate  remedy  for  slow  loading  at  all  points  of  heavy 
traffic  is  that  both  ends  of  prepayment  cars  be  thrown  open  for 
loading,  with  an  extra  conductor  at  the  forward  end  vestibule  to 
receive  and  register  fares.  This  method  is  now  employed  during 
Sunday  excursion  traffic  at  the  Ferry  and  at  other  heavy  terminals, 
and  should  be  put  into  effect  along  Market  Street. 

Physical  Obstructions.  One  very  apparent  cause  of  this 
slow  loading  exists  in  the  present  arrangement  of  safety  stations, 
the  majority  of  which  are  approximately  the  same  length  as  the 
car,  so  that  the  station  seats  are  directly  opposite  the  car  en- 
trances and  exits,  thus  greatly  impeding  the  passenger  flow.  This 
impediment  is  confirmed  by  comparative  observations  of  loading 
speed  taken  at  the  safety  stations  and  upon  the  level  street  under 
the  same  conditions.  In  this  respect,  the  stations  are  found  to 
require  a  loading  time  about  13  per  cent  in  excess  of  that  of  the 
street  level.  If  seats  are  required  at  all,  this  can  only  be  remedied 
by  locating  the  seats  opposite  the  center  of  the  car  berth  instead 
of  at  the  ends,  as  indicated  in  Figure  32. 

Whatever  plans  are  carried  out  in  rearranging  tracks  at  the 
Ferry  loop,  steps  should  be  immediately  taken  to  set  back  the 
triangular  corner  of  Sacramento  Street  and  the  The  Embarcadero, 
which  makes  it  necessary  at  present  for  the  Sacramento  Street  car 
tracks  to  enter  upon  and  thus  interfere  with  the  main  Market 
Street  loop.  I  understand  that  unsuccessful  efforts  have  pre- 
viously been  made  to  effect  this  improvement.  But,  in  spite  of  this, 
I  strongly  endorse  the  improvement  as  one  of  the  first  steps  in  the 
relief  of  the  Market  Street  throat.  At  the  same  time,  a  recession 
of  the  opposite  corner  could  be  carried  out  to  advantage  in  order  to 
open  the  throats  of  the  loop  and  distribute  pedestrian  travel  cross- 
ing The  Embarcadero.* 

Intersecting  Lines.  With  the  increasing  traffic  occasioned 
by  the  Sutter  and  Geary  Street  cars,  it  will  be  necessary  to  limit, 
interference  from  transverse  car  traffic  at  intersecting  streets  to 
the  minimum,  particularly  at  Third  Street  and  Fourth  Street.  I 
understand  that  during  the  rush  hours  it  is  the  present  practice  of 

•Methods  of  improving  the  Ferry  terminal  are  taken  up  in  Chapter  13. 


m 


I    ! 


128 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


FIGURE   30— ALTERNATIVE    ARRANGEMENTS    OF   OUTER   TRACKS. 

Possible  track  connections  for  accommodating  four-line  traffic,  showing 
two  alternative  plans  for  minimizing  car  interference:  A,  parallel  flow  plan  as 
recommended ;  B,  counter  flow  plan,  avoiding  all  branch-off  crossings ;  C,  par- 
allel flow  plan,  avoiding  one  line  of  crossings. 

the  railway  company  with  certain  of  the  west-bound  routes  that 
have  heretofore  utilized  or  crossed  Market  Street  tracks,  to  ''short- 
run,"  beginning  the  route  at  the  Market  Street  branch-ofT;  for 
example,  the  Turk-Eddy  and  Hayes-Ellis  lines.  While  this  un- 
doubtedly discommodes  some  passengers,  I  believe  it  is,  on  the 
whole,  justifiable  in  view  of  the  transfer  facilities  available.  The 
Third  Street  crossing  is  the  most  serious  problem,  and  will  require 
prompt  and  efficient  handling  to  secure  effective  results. 

The  First  Street  crossing  should  be  entirely  abandoned,  cars 
stopping  at  the  easterly  line  of  First  Street,  at  least  during  rush 
hours. 

Track  Arrangements.  There  are  three  possible  arrange- 
ments of  tracks  on  lower  ^Market  Street  which  could  be  used  to  ac- 
commodate both  the  Market  Street  and  Geary-Sutter  Street  traffic. 
Referring  to  Figure  30: 

Plan  A,  parallel  flow:  Using  present  Ferry  loop  and  with  branch- 
oiTs  from  the  outer  tracks.  Here  every  inbound  car  on  Geary  and 
Sutter  Streets  must  cross  the  entire  throat,  holding  up  all  in-bound 
and  out-bound  cars  thereon. 

Plan  B,  counter  flow:  Market  Street  lines  may  be  separated 
entirely  from  the  Geary  and  Sutter  Street  lines  by  using  the  right- 


RELIEF  OF  LOWER  MARKET  STREET 


129 


hand  pair  of  tracks  exclusively,  with  an  individual  Ferry  loop. 
This  plan  necessitates  a  rearrangement  of  loops  at  the  Ferry  in 
order  to  avoid  the  same  interference  as  it  is  sought  to  avoid 
along  Market  Street.  It  has  the  marked  advantage  that  lines  con- 
verging from  the  north  side  of  Market  Street  do  not  occasion 
any  interferen<:e  with  the  through  Market  Street  lines  as  in  the 
other  two  plans.  But  it  also  has  disadvantages:  first,  alternate 
lines  of  traffic  along  Market  Street  with  increased  danger  of  ac- 
cidents; second,  the  necessity  of  spreading  tracks  at  stations; 
third,  the  unbalancing  of  car  traffic.  These  are  discussed  later,  in 
detail. 

Plan  C,  parallel  flow:  branch-offs  from  the  first  and  third  in- 
stead of  from  the  .first  and  fourth  tracks.  Here,  in-bound  Geary 
and  Sutter  Street  cars  reach  the  Ferry  by  the  inner  track,  thus 
avoiding  one  line  intersection  but  with  two  still  remaining.  This 
arrangement  could  be  handled  by  the  present  Ferry  loop  with  slight 
modification,  or  by  the  rearranged  loop  shown.  It  would  neces- 
sitate Geary  Street  cars  using  one  track  of  the  United  Railroads 
lines. 

Cross-Section  of  Street.  There  are  four  possible  arrange- 
ments of  cars  and  safety  stations  with  the  present  four-track  lay- 
out along  Market  Street. 

Referring  to  Figure  31,  the  sketch  shows: 

(1)  Present  two-track  arrangement  above  or  south  of  Sutter 

Street,  with  a  21-foot  clear  roadway,  measured  to  the  curb. 

(2)  Present  four-track  parallel  flow  arrangement  below  Sutter 

Street,  without  safety  stations,  allowing  16>4-foot  clear 
roadway  with  room  for  two  vehicles  to  pass  while  pas- 
sengers are  loading. 

(3)  Counter  flow  arrangement  with  internal  safety  platforms 
utilized  by  both  in-bound  and  out-bound  lines.  Obviously 
out  of  the  question. 

(4)  Counter  flozu  arrangement  showing  impracticability  of  two 

stations  on  a  four-track  arrangement  except  in  an  enlarged 
part  of  the  thoroughfare. 

(5)  Counter  flow  arrangement  with  central  platforms   suited 

for  entrance  and  exit,  both  lines.  Cars  on  the  outside 
tracks  are  to  be  loaded  from  the  street.  This  is  a  pos- 
sible arrangement. 


It     > 


130 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


RELIEF  OF  LOWER  MARKET  STREET 


13! 


, 


Of  the  above  arrangements,  Nos.  2  and  5  only  may  be  con- 
sidered as  practical.  They  correspond  to  Market  Street  Plans  A 
and  B,  Figure  36.  In  No.  2,  platforms  cannot  be  used  to 
advantage,  and  passengers  entering  or  leaving  cars  on  the  inside 
tracks  must  hold  up  the  entire  line  of  cars  on  the  outside  tracks. 
In  No.  5,  it  is  necessary  to  widen  the  present  ''devil-strip"  at 
stations.  For  a  platform  width  of  six  feet,  the  tracks  will  have  to 
be  spread  two  feet  on  each  side,  or  four  feet  total.  However,  this 
spreading  may  be  done  opposite  the  triangular  plazas  in  Market 
Street  so  as  not  to  contract  the  roadway  on  the  south  side  of  the 
street  as  shown  in  Plan  B.  But  in  the  center  of  the  street,  the 
platform  thus  becomes  a  real  safety  station,  as  well  as  a  loading 
station. 

Safety  Stations.  The  present  safety  stations  vary  in  length 
from  the  length  of  one  car  up  to  70  feet,  including  seat  and  elec- 
trolier at  each  end.  Apparently  they  were  designed  for  shorter 
cars  than  now  regularly  operated  over  the  lines  of  heavy  traffic. 
As  previously  indicated,  this  seat  arrangement  is  entirely  improper, 
and  I  should  recommend  that  the  platforms  be  modified  either  by 
concentrating  the  seating  opposite  the  middle  of  the  car  or  by  extend- 
ing the  platform.  In  a  number  of  instances,  stations  of  larger  capac- 
ity than  at  present  available  are,  in  my  judgment,  badly  needed,  and 
Figure  32  shows  the  general  dimensions*  of  these  proposed  en- 
larged stations,  which  will  accommodate  two  cars  at  once,  with  a 
space  between  fenders  for  interchange  of  passengers.  The  plat- 
form proper  is  only  required  to  be  of  sufficient  length  to  serve  the 
entrance  and  exit  steps  of  the  car  platform,  although  a  few  feet  ad- 
ditional length  would  serve  a  useful  purpose  in  accommodating 
passengers  bunched  at  the  entrances.  A  substantial  electrolier  at 
each  corner  of  the  station  exposed  to  traffic  provides  some  protec- 
tion to  standing  passengers;  consequently  no  cement  barrier  is 
shown  as  in  the  present  stations.  But,  it  may  be  advisable  to  carry 
a  six-inch  step  around  the  outside  and  ends  of  the  station  to  serve 
the  double  purpose  of  assisting  passengers  to  ascend  and  to  pro- 
tect waiting  passengers  from  the  hubs  and  wheel  guards  of  care- 
lessly driven  passing  vehicles.  Side  seats  are  shown  in  this  sketch, 
but  as  standing  space  is  so  valuable,  it  is  perhaps  a  question  whether 
it  is  advisable  to  continue  their  use. 

Profiles  of  the  various  types  of  cars  operating  along  upper  Mar- 
ket Street  show  a  maximum  variation  of  two  inches  between  the 
widest  and  narrowest  car  steps.  This  permits  of  a  platform  built 
more  nearly  to  the  step  level  than  at  present.    Figure  33  shows  the 

•Safety  stations  may  be  shortened  2%  or  3  feet  if  exit  doors  from  forward  car  plat- 
forms are  located  next  to  the  car  body  or  bulkhead,  as  in  the  Geary  Street  cars,  instead  of 
next  to  the  bumper,  as  in  the  Market  Street  cars. 


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MARKET         SiT. 
ARRANSCMEMT    OF  ROADWAV 

S-rUDItS    OF  POSGIBi-C      CU-EA-R/VISICBIS 
JlON    J.  ARMOCO         C:0^4SUU^-|MG         CtNOIIsiKCFl 
i-«<N    F-RA^MCieCO        TRANSPORTATION    PROBUCf^ 


FIGURE   31— POSSIBLE   ARRANGEMENT  OF   SAFETY   STATIONS. 

Typical  cross-sections  of  Market  Street,  showing  possible  station  ar- 
rangements resulting  from  different  four-track  plans— A,  B  and  C,  Fig.  30. 
Of  these  only  Nos.  2  and  5  are  practicable.    The  former  is  recommended. 


h  ;  I 


132 


I 


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ll    '  •    I 


I.  1 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Pl^OPOSeD      TWO     CAR       SAFETY      STATION 

FOR     LOADIN©     IN    TANOCM 

ScAue     \»tcn  m  16  mer 
o      a       m  JTFT 


jMowiiMft  exiT  rowwAKO   tooitioh 
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LeCT«Ol.»B«. 


FIGURE  32— SAFETY  CAR  STATIONS,  MARKET  STREET. 
Recommended  rearrangement  of  safety  station  for  accommodating  two  cars 
simultaneously,  first  car  arriving  to  take  the  forward  berth.  Step  built 
around  outside  of  station  for  protection  to  waiting  passengers.  Seats  are 
optional,  but  free  passage  ways  opposite  car  platform  are  essential.  Note 
that  stations  may  be  shortened  if  front  exit  gates  are  next  to  car  bulkheads. 

present  clearance  conditions  between  platform  and  stations.  As 
standard  equipment  will  probably  not  employ  a  drop  step  lower 
than  14  inches  from  the  rail,t  I  believe  the  station  could  be  built 
to  a  height  of  10  inches  to  advantage,  and  with  a  minimum  of  two 
inches  clearance  outside  of  the  widest  step.  This  additional  height 
will  tend  to  prevent  persons  attempting  to  stand  on  the  ground  level, 
and  to  facilitate  entrance. 

Seat  Flow.  A  graphical  impression  of  the  relation,  disposi- 
tion and  volume  of  car  traffic  on  Market  Street  and  branch  streets 
by  these  trackage  Plans  A  and  B,  is  aflforded  by  the  diagrams, 
Figures  34  and  35  showing  the  number  of  seats  passing  a  given 
point  during  the  rush  hour.  Figure  35  shows  the  entire  avoidance 
of  car  interference  along  Market  Street  by  the  Geary  and  Sutter 
Street  lines,  Plan  B. 

Assignment  of  Stops.  The  plans  proposed  herein  for  locating 
stopping  points  and  operating  four  tracks  in  lower  Market  Street  in- 
volve the  following  essential  principles : 

+To  the  step  tread. 


RELIEF  OF  LOWER  MARKET  STREET 


133 


Car     STEP    CLEARANCE     AT     SAFETY      STATIONS 

Actual    and    Proposed 
scale:    \  inch  -  j  poot 

O  I  2  FT 


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GCARY  ST   CARl 


X  I550  TO    1749    TYPC 
Ol  TO    ISO     TYPC. 
I500    TO    1549     TYPE. 


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mtW 


Maximum-.. 
Minimum  (actual)-  -  *t  ^     '-^  ' 

TOP     OP     RAIL       I   I    II    "lU 


Floor  op  station 


-4'-7i' 


5-cr- 


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4'-er- 


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:-*-fPROP05ED    STATION  779= 


V-—  n^FosEO  station  ?  I : 


. 


FIGURE  33— COMPARATIVE  STUDY  OF  CAR  STEP  CLEARANCES. 

Diagram  showing  present  variation  in  step  clearance  at  safety  stations 
along  Market  Street,  due  to  different  types  of  cars  and  station  designs,  also 
the  position  of  station  as  recommended. 


■IB 


1 34  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


RELIEF  OF  LOWER  MARKET  STREET 


135 


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19 


J»  AUaMOSXNOM 


i 


ii 


'*' ' 


FIGURE   34— CARRYING   CAPACITY   OF   TERMINAL   LINES,   PLAN   A. 

Diagram  indicating  relative  distribution  of  seats  in  the  vicinity  of  Market 
Street  during  a  typical  rush  hour.  Width  of  band  is  proportional  to  number 
of  seats  passing  a  given  point  per  hour.  Geary  and  Sutter  Street  traffic  as 
contemplated  is  shown  in  heavy  black  for  comparison.  This  diagram  repre- 
sents trackage  Plan  A  as  recommended,  and  gives  a  measure  of  the  inter- 
ference resulting  from  four-track  operation. 


FIGURE  35— CARRYING  CAPACITY   OF  TERMINAL  LINES,  PLAN   B. 

Same  as  Figure  34,  except  for  alternative  trackage  Plan  B,  accommodating 
Geary  and  Sutter  Street  lines  on  separate  tracks.  The  relative  interference  of 
car  traffic  can  be  best  appreciated  by  comparing  these  two  plans.  Although 
less  than  Plan  A,  Fig.  34,  this  was  abandoned  on  account  of  the  complexity  o* 
counter-flow  traffic. 


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Li   .1 
11 


4  Jj   ' 

is 

i  i 

1. 


ft 


136  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

( 1 )  That  car  stops  should  be  disfributed  as  regularly  as  possible 
along  the  street  in  order  to  secure  the  most  effective  car 
operation,  i.  e.,  acceleration,  coasting  and  braking. 

(2)  That  the  distance  between  stops  should  be  increased  to  a 
maximum  consistent  with  convenience  of  the  majority  of 
patrons  and  the  varying  local  demands  of  passenger  travel. 

(3)  That  provisons  be  made  for  two-car  or  tandem  crossings  at 
intersecting  streets  where  congestion  of  traffic  is  sufficiently 
serious  to  require  traffic  regulation  and  the  whistle  signal. 

(4)  That  stations  at  such  points  be  designed  for.  tandem  stops, 
so  that  loading  and  unloading  may  be  done  simultaneously 
without  retarding  the  entire  line  of  traffic  by  cars  berthing 
singly  as  at  present. 

(5)  That  "free  way"  for  vehicle  traffic  across  intersecting 
streets  should  not  be  interfered  with  by  locating  the  stops 
so  as  to  constitute  a  source  of  congestion. 

(6)  That,  during  rush  hours,  the  right-of-way  across  Market 
Street  be  proportioned  approximately  according  to  the  rela- 
tive volume  of  passenger  and  car  travel. 

(7)  That  definite  stopping  places  be  designated  by  posts  or  by 
signs  suspended  from  the  trolley  span  wires  supplemented 
by  signs  in  the  pavement,  so  that  patrons  may  know  exactly 
where  cars  are  to  stop,  thus  avoiding  confusion. 

(8)  That  safety  loading  stations  are  only  needed  where  passen- 
gers are  required  to  wait  for  a  particular  car  for  any  length 
of  time. 

(9)  That  branch  lines  should  berth  off  of  Market  Street  as  soon 
as  the  intersection  is  reached. 

In  applying  these  principles,  the  institution  of  the  "near  side" 
stop  becomes.,  necessary  at  least  within  the  congested  zone,  except 
in  special  cases  of  "blind"  street  intersections.  The  rule  may  be 
waived  in  the  case  of  the  blind  side  of  a  cross  street.  In  the  inter- 
ests of  safety,  cars  are  now  required  to  stop  at  all  special  work  in- 
tersections over  which  cars  are  regularly  operated  and  also  at  all 
leading  switches.  It  follows,  therefore,  that  they  should  not  be 
required  to  stop  also  at  the  other  side  of  the  crossing,  but,  once 
across,  should  be  given  the  right-of-wav  to  the  next  "near  side" 
intersection  in  order  to  clear  the  track  for  succeeding  cars.  Thi« 
will  eliminate  certain  of  the  present  stopping  points,  unavoidably.* 


♦For  each  unnfressarv  ston  eliminated,  the  schedule  speed  can  be  increased  5.6  per 
cent,  under  San  Francisco  conditions,  assuming  that  cars  now  stoo  at  every  corner 
averaging  440  feet  apart,  or  twelve  8top»  per  mile.  The  average  distance  on  Market  Street 
it  now  even  lest  than  thii. 


RELIEF  OF  LOWER  M.^RKET  STREET 


137 


Plan  of  Stops.t  The  accompanying  drawing,  Plate  10, 
embodies  the  above  principles,  applied  to  trackage  Plan  A  as 
recommended.  This  may  be  compared  to  the  present  plan  of 
stops,  Figure  36.  In  the  appendix  hereto,  these  plans  are  discussed 
in  detail,  with  the  reasons  for  such  changes  as  are  recommended. 
Each  station  stop,  flag  stop  and  safety  stop  is  designated  by  a  car 
in  position.  Ordinarily,  not  all  of  these  stops  would  have  to  be 
made.  Cautionary  stops  are  also  indicated.  The  present  safety 
stations  at  Ellis  and  at  O'Farrell  Streets  are  removed  to  the  east 
side  of  the  crossing  and  several  of  the  stations  lengthened.  Stops 
at  Fremont  and  Main  Streets,  in-bound,  are  omitted  to  facilitate 
quick  running  from  the  business  district  to  the  Ferry  and  for  the 
reason  that  the  passenger  traffic  Ferry-bound  during  evening  rush 
hours  originating  east  of  First  Street  is  so  light  as  to  make  it  unde- 
sirable to  delay  the  main  line  by  stopping  at  each  of  these  short 
blocks. 


Plan  A,  In  this  plan,  the  average  running  distance  between 
stops  is  454  feet,t  and  on  the  average  a  running  speed  of  7.75  miles 
per  hour  from  the  Ferry  to  McAllister  Street  can  be  maintained, 
assuming  no  interference  from  vehicle  traffic  and  an  average  stop 
of  10  seconds  at  each  of  the  points  indicated. 

Within  the  four-track  territory,  cars  moving  in  the  same  direc- 
tion on  adjacent  tracks  are  shown  in  a  tandem  position,  based  upon 
a  rule  of  the  road  that  one  line  of  traffic  is  not  allowed  to  pass 
another  in  the  same  direction  while  loading  or  unloading.  This 
will  unquestionably  be  a  source  of  some  delay  under  trackage  Plan 
A,  for  the  reason  that  outer  track  cars  will  hold  up  those  on  the 
inner  track,  and  vice  versa.  However,  in  the  case  of  such  a  broad 
street  as  Market  Street,  it  would  seem  possible  and  necessary  to 
waive  this  rule  to  the  extent  that  inner  track  cars  should  be  allowed 
to  continue  under  cautionary  running  past  a  car  loading  or  unload- 
ing on  the  outer  track.  This  will  afford  the  inner  tracks  a  certain 
measure  of  relief,  much  needed  by  virtue  of  the  fact  that  these  tracks 
are  carrying  the  heaviest  traffic.  Obviously  this  rule  is  not  reversi- 
ble, and  in  all  cases  the  outside  car  must  stop  while  the  inside  car  is 
loading  and  unloading.  In  these  tandem  stops,  the  outside  car  berth 
is  shown  in  the  forward  positon — that  is,  leading  by  one  car  length 
— in  order  to  permit  access  to  the  rear  car  platforms.  However, 
the  forward  berth  will  in  any  case  be  occupied  by  the  Urst  car  ar- 


tPlans  discussed  in  detail  in  Appendix. 

tThe  average  distance  between  present  stops  is  368  feet;  minimum  distance,   137  feet; 
maximum,  678  feet. 


138 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Vi 


If  1    If 


i  i ; 


'II  i  ' 


II 


riving  on  either  outer  or  inner  track,  in  order  that  the  next  arrival 
may  berth  in  the  tandem  position  shown  without  obstructing  streets 
and  established  lines  of  vehicle  traffic.  This  is  important,  as  100- 
foot  berths  are  now  under  consideration  in  lower  Market  Street,  and 
the  stop  signs  placed  along  the  streets  for  the  guidance  of  passen- 
gers should  be  located  with  reference  to  the  forward  and  not  the 
rear  berth. 

Plan  B.  Working  out  this  same  idea  of  fixed  stops  with  track- 
age Plan  B,  Figure  36  is  a  result.!  Fortunately,  most  of  the  safety 
stations  between  tracks  may  be  located  nearly  or  exactly  opposite 
the  triangular  plazas  existing  at  Geary,  Post,  Sutter,  Bush,  Pine 
and  California  Streets.  In  this  arrangement  the  average  distance 
between  stations  from  the  Ferry  to  McAllister  Street  is  484  feet,  and 
more  rapid  running  is  possible  along  the  lower  end  of  Market 
Street,  north  of  Third  Street,  by  reason  of  the  lengthened  and 
more  uniform  stops,  and  with  a  clear  street  a  schedule  speed  aver- 
aging eight  miles  per  hour  could  be  maintained.  This  plan  necessi- 
tates a  considerable  rearrangement  of  loops  at  the  Ferry,  the 
spreading  of  which  would  unquestionably  increase  loading  facilities. 

The  spreading  of  tracks  that  will  be  necessary  to  accommodate 
these  safety  stations  can  be  worked  out  by  allowing  the  east  side 
tracks  to  remain  as  they  are  and  spreading  the  west  side  tracks 
into  the  plaza  where  there  is  ample  space  to  avoid  any  interference 
with  vehicle  traffic.  Although  eight  cars  are  shown  at  each  stop, 
it  is  unlikely  that  such  a  condition  will  occur  except  very  infre- 
quently. 

Finally,  weighing  the  advantages  and  disadvantages  of  these 
two  plans,  in  my  judgment,  Plan  A  best  meets  the  present  neces- 
sities, and  it  should  be  put  into  immediate  effect  by  the  construction 
of  the  necessary  track  and  special  work.  Under  present  traffic  con- 
ditions and  in  the  absence  of  a  supplementary  rapid  transit  system. 
Plan  B  is  objectionable  from  the  standpoint  of  counter  traffic  flow. 

Shelters.  Owing  to  the  peculiar  conditions  resulting  from  the 
diagonal  street  intersections  north  of  Market  Street,  it  is  desirable 
that  adequate  shelter  stations  should  be  erected  within  the  existing 
triangular  plazas,  especially  at  California  Street  where  the  California 
Street  line  terminates.  This  shelter  may  simply  provide  seats  for 
waiting  transfer  passengers,  or  may  be  more  elaborate,  as  is  pos- 
sible in  the  large  plaza  at  Bush  Street  and  Battery  Street. 

In  conclusion,  I  can  recommend  a  reasonable  utilization  of 
the  four  tracks  on  lower  Market  Street,  but  in  accommodating 
Geary  Street  and  other  lines,  such  a  plan  must  be  worked  out 
carefully  by  the  respective  operating  departments,  in  order  to 

tDetail  drawitiR  not  shown  as  Plan  B  could  not  be  recommended. 


RELIEF  OF  LOWER  MARKET  STREET 


139 


Plan 


FIGURE  36  - 

A  recommended. 


KEY  SHEET  FOR  FOUR-TRACK  PLANS. 

Dots  indicate  stops,  single  and  tandem. 


1-1 


■  1 


": 


>  < 


1i 


140 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


preserve  the  proper  balance  between  inner  and  outer  traffic,  or 
there  will  result  worse  delay,  confusion,  and  accidents  than  at 
present.  The  operating  problem  is  by  no  means  as  simple  as  it 
appears,  and  in  order  to  produce  the  most  effective  results  there 
must  be  close  co-operation  in  putting  into  effect  operating  rules 
for  passenger,  car,  and  vehicle  traffic. 


FERRY  TERMINAL  WITH  CABLE  AND  HORSE  CAR  OPERATION,  1905. 


i-|l 


CHAPTER  7 

REROUTING  AND  SERVICE  RE- 
DISTRIBUTION 

Rerouting — Terminal  District 
Rerouting — Outlying  District 
Service  Redistribution 
Routing  for  Municipal  System 
General  Service  Improvements 

A  verp  important  phase  of  this  transportation  study,  from  the  vieiP- 
point  of  the  public,  is  to  obtain  adequate  and  most  direct  service  betiveen 
destination  points;  and  from  the  vien^point  of  the  Compan}},  to  provide  this 
service  rvith  the  least  car  mileage  and  resulting  cost.  From  either  viewpoint, 
it  is  essential  to  provide  for  the  immediate  relief  for  the  congested  terminal 
district.  In  this  chapter  are  presented  detailed  routing  plans  for  both  the 
terminal  and  outlyfing  districts,  calculated  to  relieve  congestion  and  best 
serve  the  existing  traffic  b}f  the  institution  of  new  routes  as  far  as  possible 
rather  than  fcp  disturbing  the  present  routes.  Redistribution  of  service  is 
assigned  to  the  individual  routes  upon  the  bases  of  detailed  traffic  counts 
covering  the  entire  syfstem  and  the  loading  standards  fixed  for  each  type  of 
car  operated.  An  alternative  system  of  routing  for  competitive  munici- 
pal operation  is  suggested  for  use  in  the  event  that  a  unified  system  rvith  the 
municipal  railway  operating  in  development  territory  is  found  impossible. 
In  addition,  general  improvements  in  operation  calculated  to  increase  the 
speed  of  transit  and  the  comfort  and  safety  of  passengers  are  recommended. 

The  Problem.  To  establish  an  efficient  rerouting  plan  satisfac- 
tory to  all  is  generally  an  impossibility  for  the  reason  than  any 
changes  so  seriously  affect  the  relations  between  various  parts  of  the 
community ;  and  therefore  the  best  that  can  be  done  is  to  present  a 
plan  for  public  discussion  and  approval  or  modification.  It  is  a  mat- 
ter for  mutual  concessions  rather  than  of  individual  judgment,  and 
local  interests  should  not  intervene  to  defeat  a  meritorious  plan  de- 
signed for  general  improvements.  In  this  matter  the  various  civic  and 
commercial  organizations  of  San  Francisco  should  find  a  useful 
field  for  action.     Two  distinct  viewpoints  must  be  recognized: 

1.  Assuming  the  traction  lines  to  be  operated  as  a  unified 
system,  not  necessarily  under  the  same  ownership,  but  recognizing 
the  principle  of  one  city,  one  fare,  universal  transfers,  with  the 
municipal  system  operating  in  development  rather  than  competitive 
territory. 


INTENTIONAL  SECOND  EXPOSURE 


140 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


procTNc  ilic  i>r<.i)cr  l)ahmc<.'  hclwccn  inner  and  (»nlcr  iraftio,  mI" 
tluML'  will  rc>uU  worse  delay,  contusion,  and  accidents  than  at 
])resenl.  Tbe  t)peratini;  prcfbleni  is  by  no  means  as  simple  as  it 
appears,  and  in  (»rder  to  produce  the  most  etYective  results  there 
must  he  close  co-operation  in  puttinj^^  into  effect  oi)erating  rules 
for  i)assetii;er.  car,  and  vehicle  traffic. 


KRKV   TF.UMIXAL   WITH    CW.LV.   AND   TIORSF.   (Wi   OPKRATIOX.    lOO-;. 


CHAPTER  7 

REROUTING  AND  SERVICE  RE- 
DISTRIBUTION 

Rerouting — Terminal  District 
Rerouting — Outlying  District 
Service  Redistribution 
Routing  for  Municipal  System 
General  Service  Improvements 


A  verp  important  phase  of  this  transportation  stud^,  from  the  vieip- 
point  of  the  public,  is  to  obtain  adequate  and  most  direct  service  between 
destination  points;  and  from  the  viewpoint  of  the  Company,  to  provide  this 
service  with  the  least  car  mileage  and  resulting  cost.  From  either  viewpoint, 
it  is  essential  to  provide  for  the  immediate  relief  for  the  congested  terminal 
district.  In  this  chapter  are  presented  detailed  routing  plans  for  both  the 
terminal  and  outlying  districts,  calculated  to  relieve  congestion  and  best 
serve  the  existing  traffic  b\)  the  institution  of  new  routes  as  far  as  possible 
rather  than  b\)  disturbing  the  present  routes.  Redistribution  of  service  is 
assigned  to  the  individual  routes  upon  the  bases  of  detailed  traffic  counts 
covering  the  entire  system  and  the  loading  standards  fixed  for  each  type  of 
car  operated.  An  alternative  system  of  routing  for  competitive  munici- 
pal operation  is  suggested  for  use  in  the  event  that  a  unified  system  with  the 
municipal  railway  operating  in  development  territory  is  found  impossible. 
In  addition,  general  improvements  in  operation  calculated  to  increase  the 
speed  of  transit  and  the  comfort  and  safety  of  passengers  are  recommended. 

The  Problem.  To  estahlish  an  efficient  rennitiui^  plan  satisfac- 
tory to  all  is  u^enerally  an  imiK^ssihility  for  the  reason  than  any 
chaniics  so  seriously  affect  the  relations  hetween  various  parts  of  the 
comnumitv  ;  and  therefore  the  hest  that  can  he  dont-  is  to  ])resent  a 
l)lan  for  puhlic  discussion  and  approval  or  moditication.  It  is  a  mat- 
ter fur  mutual  concessions  rather  than  of  individual  jndi^uient,  and 
local  interests  should  not  intervene  to  defeat  a  meritorious  plan  de- 
signed for  t^eneral  improvements.  In  this  matter  the  various  civic  and 
commercial  org-anizations  of  San  Francisco  should  find  a  useful 
field  for  action.     Two  distinct  viewpoints  must  be  recoj^nized : 

1.  Assuming  the  traction  lines  to  be  operated  as  a  unified 
system,  not  necessarily  under  the  same  ownership,  but  recognizing 
the  principle  of  one  city,  one  fare,  uniz'ersal  transfers,  with  the 
municipal  system  operating  in  development  rather  than  competitive 
territory. 


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142 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


2.  Assuming  the  unified  system  impracticable,  and  consequently 
the  development  of  each  system  independently  without  interchange  of 
transfers,  and  possibly  with  wholesale  competition. 

Heretofore  have  been  considered  only  such  factors  as  bear  upon 
the  question  of  a  definite  service  standard  without  attempting  to  fix 
upon  service  distribution. 

It  now  remains  to  determine:  (a)  riding  characteristics  of 
patrons  from  actual  observation;  (b)  new  routes  by  which  cars  can 
be  run  to  better  advantage;  (c)  specific  improvements  in  headway 
and  methods  of  operation;  (d)  whether  this  improved  service  is 
possible  without  unreasonably  impairing  net  income;  and  finally, 
(e)  a  system  of  routing  for  the  municipal  railway  lines. 

REROUTING— TERMINAL  DISTRICT 

Essentially  the  problem  of  routing  in  the  downtown  loading 
district  is  one  of  most  advantageously  utilizing  the  streets  available, 
which  unfortunately  are  not  laid  out  to  best  serve  traffic  require- 
ments, and  to  make  possible  the  additional  service  now  required 
without  causing  still  further  congestion,  especially  on  lower  Market 
Street.     The  general  principles  are  briefly  as  follows: 

L  To  avoid  the  concentration  of  excessive  traffic  on  a  single 
street,  when  parallel  streets  may  be  made  available.  A  walk  of 
one  block  should  not  be  considered  unreasonable  if  in  the  interest 
of  effective  routing. 

2.  To  distribute  car  traffic  according  to  the  capacity  and  im- 
portance of  the  streets,  and  at  the  same  time  preserve  most  direct 
routing  to  important  traffic  centers. 

3.  To  provide  loops  instead  of  stub  terminals  as  far  as  possible 
for  lines  of  heavy  travel. 

4.  To  facilitate  collection  of  passengers  within  the  loading  dis- 
trict by  "pick-up"  loops  for  short-haul  lines,  especially  for  short 
lines  terminating  along  a  trunk  line.  Long-haul  lines  may  prop- 
erly terminate  further  from  the  center  of  the  loading  district. 

5.  To  avoid  branch-off  and  other  intersections  along  very  con- 
gested streets  and  two-way  operation  on  single-track  streets  within 
the  business  district. 

Capacity  of  Market  [Street.  On  this  most  congested 
thoroughfare,  127  cars  per  hour  are  operated  on  the  middle  tracks 
during  the  rush  period  corresponding  to  a  headway  of  about  28 
seconds.  The  theoretical  minimum  headway  providing  safe  car 
spacing  and  reasonably  efficient  operation  is  about  22  seconds  for  the 
standard  equipment  used  here;*  but  it  is  believed  that  the  present 
headway  represents  about  the  practical  minimum  on  such  a  street 

•See  discussion  of  this  subject.  Chapter  6 — Relief  of  Lower  Market  Street. 


REROUTING  AND  SERVICE  DISTRIBUTION 


143 


necessarily  congested  with  pedestrians  and  vehicle  traffic  especially 
with  four-track  operation.     (See  Fig.  40,  present  routing.) 

It  is  therefore  necessary,  in  formulating  rerouting  plans,  to  divert 
any  further  increase  in  the  traffic  on  Market  Street  to  parallel 
streets,  especially  rush  hour  trippers.  At  present,  Mission 
Street  is  the  only  convenient  substitute  available  for  this  purpose, 
as  it  now  carries  only  56  cars  per  hour. 

These  conditions,  in  reality,  furnish  a  measure  of  the  possibilities 
of  any  terminal  rerouting  plan  in  the  matter  of  deferring  the  eventual 
construction  of  a  Market  Street  subway.  With  the  existing  physical 
limitations,  this  subway  must  come  when  every  other  means  of  relief 
of  the  Market  and  Mission  Street  traffic  has  been  exhausted.  And 
the  rerouting  plan  recommended  herein  can  only  be  regarded  there- 
fore as  a  temporary  means  of  conserving  existing  street  capacity  to 
the  maximum  possible  extent,  rather  than  what  may  be  termed  a 
final  solution  for  any  considerable  future  period. 

Terminals.  At  the  Ferry  terminal,  the  inner  loop  is  now 
being  operated  up  to  its  maximum  capacity,  81  cars  per  hour,  even 
this  often  causing  a  line-up  on  the  inbound  Market  Street  tracks. 
In  order  to  allow  comfortable  access  to  the  inner  loop,  the  use  of 
the  outer  loop  should  not  exceed  this  amount,  giving  a  total  capacity 
for  the  terminal  of  162  cars  per  hour.  When  the  Geary  and  Sutter 
Street  lines  are  operated  to  the  Ferry,  the  terminal  is  expected  to 
handle  over  200  cars  per  hour,  but  it  is  obvious  that  this  will  neces- 
sitate either  a  radical  modification  of  the  terminal,  looping  back 
extras  at  Market  Street,  or  diverting  to  Mission  Street. 

The  south-side  stub  terminal  at  the  Ferry  now  operates  78  cars 
per  hour,  which  exceeds  its  capacity  and  will  continue  to  cause 
congestion  if  operated  without  a  loop,  which,  in  any  event,  will  ulti- 
mately become  necessary ;  and  if  additional  service  is  to  be  run  on 
Mission  Street,  extra  cars  must  be  looped  back  without  reaching 
the  Ferry  or  else  stub-ended  at  First,  Second,  Fifth,  and  Eighth 
Streets,  where  double  cross-overs  should  be  installed.  Loop  ter- 
minals would  probably  provide  the  greater  capacity,  but  the  latter 
plan  is  for  the  present  recommended,  inasmuch  as  a  large  propor- 
tion of  the  load  originating  on  and  north  of  Market  Street  is  best 
served  in  this  way. 

As  an  alternative,  Market  Street  congestion  may  be  directly  re- 
lieved by  diverting  all  of  the  traffic  of  an  entire  line  from  Market 
to  Mission  Street.  But  there  appears  to  be  only  two  lines  logically 
available  for  this  purpose:  (1)  Haight  Street,  and  (2)  Market- 
Castro,  two  of  the  heaviest  lines  operated.  However,  it  is  doubtful 
if  the  patrons  on  either  of  these  lines  would  at  this  time  consent  to 
such  a  plan. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Another  method  of  relieving  both  street  and  terminal  congestion 
is  by  the  use  of  a  Market-Mission  one-way  loop,  running  inbound 
on  Market  to  East,  thence  outbound  to  Mission,  and  return  on 
Fifth,  Ninth,  Tenth,  or  Twelfth  Streets.  But  in  view  of  the  un- 
balancing of  traffic  on  Market  Street,  particularly  under  four-track 
operation,  this  has  been  reserved  only  as  an  alternative  for  use 
after  the  effect  of  service  on  the  outer  tracks  has  been  determined. 

Taken  altogether,  it  appears  that  the  stub  terminal  plan  is 
preferable  inasmuch  as  it  provides  Market  Street  service  for  all 
lines  now  using  that  thoroughfare,  restricting  traffic  on  the  inner 
tracks  to  the  present  amount.  As  the  extra  cars  diverted  to  Mis- 
sion Street  are  stub-ended  at  Market  Street,  they  are  reasonably 
convenient  to  all  Market  Street  patrons,  directly  or  by  transfer. 

Capacity.  The  general  range  of  capacity  of  various  types  of 
stub  terminals  is  given  below,  necess'arily  subject  to  considerable 
variation  according  to  the  total  number  of  passengers  per  car  that 
have  to  be  loaded  at  the  terminal.  On  the  usual  single-track  stub  a 
headway  of  from  2^  to  3  minutes  may  be  easily  maintained  with 
proper  dispatching.  If  a  double  cross-over  is  installed  and  each  of 
the  two  tracks  used  as  a  stub,  this  total  headway  may  be  reduced  to 
about  \y2  minutes.  But  where  it  is  essential  to  maintain  through 
service  over  the  same  tracks,  as  may  be  necessary  in  Ellis,  Sutter  and 
Geary  Streets  at  Market  Street,  it  is  undesirable  to  use  the  double 
stub  due  to  the  obstruction  to  through  traffic ;  and  inasmuch  ds  all 
through  traffic  at  each  of  these  points  is  routed  either  to  the  Depot 
or  to  the  Ferry,  where  schedule  trains  and  boats  must  be  met,  the  in- 
bound track  should  be  cleared  by  stub-ending  cars  on  the  outbound 
track  only.  This  necessarily  limits  the  total  capacity  to  that  of  a 
single-track  stub  terminal  as  follows : 

CAPACITY  OF  STUB  TERMINALS*  FOR  HEAVY  LOADING  POINTS.  INCLUDING 

LAY-OVER 


Proportion  of 

Number  of 

Total  Capacity, 

Cars  per  Hou 

Cars  Through 

Loading 

Even 

Uneven 

Berths 

Trunk 

Trunk 

Headway 

Headway 

None 

1 — Single  stub 

24 

Less 

None 

2 — Double  stub 

40 

Less 

V2 

1 — Single  stub 

24 

32t 

Vz 

<         i(         « 

24 

29 

% 

1                   «                    it 

24 

26 

V2 

2 — In  tandem, 

24 

40t 

single    stub 

H 

2        "         " 

24 

28 

•Based  upon  the  assumption  that  all  cars  stub-ending  stop  for  two  minutes  and  through 
cars  stop  one  minute;  15  seconds  required  to  enter  or  clear  berths.  All  capacities  may 
be  materially  increased  by  dispatching  cars  promptly  without  lay-over  after  loading,  as  is 
now  the  case  at  Sutter  Street.  Obviously,  delays  from  lay-over  time  reduce  stub  terminal 
capacity  proportionately.  "Tandem  berth"  means  two  cars  in  line,  as  recommended  for 
Market   Street  safety  stations. 

fApproximates  present  Ellis  Street   conditions. 

JRecommended  for  Ellis  Street,  and  possibly  for  Geary  and  Sutter  Street  stub  terminals. 


REROUTING  AND  SERVICE  DISTRIBUTION 


145 


Headway.  The  question  of  uniform  headway  depends  upon 
the  relative  imjxDrtance  of  trunk  and  of  through  lines.  In  cases 
where  only  one  route  is  handled  in  the  terminal,  (part  of  the  cars 
being  through  run)  an  even  headway  may  be  maintained  with 
comparatively  little  sacrifice  of  capacity.  But  where  the  through 
and  stub  cars  are  of  different  routes,  uniform  headway  on  both 
trunk  line  and  branch  routes  is  impossible  except  when  half  of  the 
cars  stub  and  half  route  through  the  terminal.  Where  an  even 
headway  is  not  essential  the  capacity  may  be  materially  increased 
by  the  provision  of  two-car  or  tandem  berths  on  the  outbound 
track,  and  this  is  desirable  in  any  event  when  the  regular  stub  berth 
is  occupied  to  accommodate  cars  after  crossing  Market  Street.  This 
non-uniform  trunk  line  headway  is  not  very  objectionable  with  ser- 
vice as  frequent  as  2  to  2^  minutes,  as  in  the  case  of  most  of  the 
downtown  trunk  lines ;  but  with  through  headway  as  infrequent  as  4 
to  5  minutes,  aiiy  considerable  irregularity  therein  is  certainly  ob- 
jectionable. 

Distribution.  With  the  proposed  terminal  routing  and  service 
distribution,  car  traffic  would  be  assigned  to  the  various  terminals  as 
follows  as  indicated  on  re-routing  plan.  Fig.  37: 

CAR    ASSIGNMENTS   TO   TERMINALS 

Cars  Per  Hour 
Service  as  of  July,  1912  Present     Proposed 

Market  Street  ferry  terminal   127  127 

Market  Street  outer  tracks 0  40 

South-side  ferry  terminal 78  72 

First  and  Market  stub   4  30 

Second  and  Market  stub   12  24 

Fifth  and  Market  stub  25  30 

Eighth  and  Market  stub 10  10 

Eddy  and  Market  stub   22  22 

Powell  and   Market  stub   34  32t 

Ellis  and   Market  stub    14  13 

Sutter-Sansome    loop    46*  191 

The  proposed  plans  for  rerouting  in  the  terminal  district  are 
all  based  upon  traffic  conditions  of  July,  1912,  and  therefore  the  car 
requirements  are  probably  3^2%  low.  This  routing  is  necessarily 
dependent  upon  that  adopted  for  outlying  districts,  later  discussed. 

Haight  Street  service  to  be  mcreased  from  30  to  41  cars  per  hour 
to  accommodate  Beach  traffic;  should  be  split  at  12th  to  relieve 
Market  Street,  25  cars  per  hour  running  over  the  present  route,  and 
16  via  Mission  Street  to  a  terminal  in  First  at  Market  Street.  This 
routing  will  leave  the  Haight  service  on  Market  Street  practically 

tAssuming  larger  double-end  equipment. 
♦Stub  end. 
f'Pick-up"  loop. 


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FIGURE  37— REROUTING  MAP— TERMINAL  DISTRICT. 
The  most  practical  method  of  relieving  car  congestion  by  more  nearly 
approximating  actual  travel  is  by  improvements  in  routing.  These  are  im- 
mediately necessary  in  view  of  the  considerable  increase  in  equipment  which 
is  required  for  adequate  service  and  due  to  future  growth.  From  this  plan 
may  be  traced  in  code  the  recommended  re-routing  of  every  line  outbound 
from  the  downtown  district  and  the  number  of  cars  outbound  on  each  street 
during  the  rush  hour  resulting  therefrom.  The  principal  changes  from 
the  present  routing  plans  consist  in  using  Mission  Street  for  part  of  addi- 
tional Haight  and  Hayes  traffic,  use  of  Howard  Street  for  the  San  Mateo 
line,  and  the  installation  of  loop  terminals  for  short  lines,  excepting  the  stub 
terminals  in  the  100- Vara  streets  at  Market  Street  which  have  become  neces- 
sary because  of  the  absence  of  terminal  capacit"  at  the  Ferry.  Market  Street 
traffic  has  probably  reached  the  limit  and  further  traffic  increase  must  be 
diverted. 


REROUTING  AND  SERVICE  DISTRIBUTION 


147 


unimpaired,  and  at  the  same  time  relieve  Market  of  all  traffic  origi- 
nating to  the  south. 

Hayes  line  to  be  split  either  at  Polk  or  Larkin  Streets,  15  cars 
per  hour  running  over  the  present  route  and  12  via  Mission  Street 
to  a  stub  terminal  in  Fifth  at  Market  Street.  The  object  of  divert- 
ing this  traffic  is  the  same  as  in  the  case  of  the  Haight  Street  line. 

Market-Castro^  w^hile  satisfactory  for  the  present,  forms  the  most 
logical  route  after  Haight  and  Hayes,  to  be  partly  diverted  to  Mis- 
sion Street  and  this  should  be  done  eventually  as  the  congestion 
on  lower  Market  increases. 

Valencia,  being  the  only  Market  Street  line  running  into  the 
Mission  district,  can  hardly  be  diverted  justly  at  the  present  time. 
Ultimately  it  will  be  desirable  to  parallel  this  line,  especially  out 
29th  Street  by  a  Mission  line,  in  order  to  furnish  direct  service  to 
the  Valencia  travel  originating  south  of  Market  Street. 

McAllister  through  service  to  the  Ferry  may  be  limited  to  20 
cars  per  hour  by  short  running  additional  service  from  a  stub  ter- 
minal at  Eddy  and  Powell,  or  by  a  Turk-Eddy  collecting  loop.  Pre- 
ferably, this  service  should  be  routed  via  Turk  and  Eddy  Streets 
as  far  as  Divisadero  Street  and  thence  out  McAllister  (new  route). 

Ellis-Richmond  to  be  run  down  Ellis  Street  and  across  Fourth 
to  the  depot;  every  third  car  stub-ended  at  Market  Street  on  the 
outbound  ( north j   track.     (See  preceding  discussion  of  capacity.) 

Ellis  {Fillnwre) -Jackson  (new  route).  Entire  service  to  be 
stub-ended  in  Ellis  at  Market  Street,  outbound  track,  unless  looped 
via  Stockton,  Post,  and  Taylor  Streets. 

Eddy-Hayes  to  use  the  present  stub-terminal  at  Eddy  and  Market 
Streets. 

Geary  Street  line  to  be  run  to  the  Ferry  on  the  outer  Market 
Street  tracks.  Part  of  the  service  to  be  short-run  to  Kearny 
Street,  preferably  by  means  of  a  Kearny-Post-Stockton  Street  col- 
lecting loop  rather  than  stub-ended  in  Geary  Street. 

Sutter  Street  lines  to  be  split  at  Market  Street,  part  running 
to  the  Ferry  over  the  outer  Market  Street  tracks,  and  part  short- 
running  to  Sansome  Street,  preferably  by  the  Sansome-Bush-Mont- 
gomery  Street  loop,  rather  than  stub-ended. 

Post- (Polk) -Pacific  (new  route)  to  utilize  Post  Street  to  Kearny 
with  terminal  loop  via  Kearny,  Washington  and  inbound  on  Mont- 
gomery Street.  Two  blocks  of  new  track  on  Post  Street  are  neces- 
sary for  which  some  form  of  franchise  will  be  required. 

San  Mateo  is  the  only  interurban  line  on  the  system  and  inas- 
much as  it  should  serve  long-haul  traffic  only,  there  is  no  necessity 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


for  it  to  terminate  at  Market  Street,  especially  since  all  terminals  in 
that  vicinity  are  already  congested.  In  accordance  with  the  plan 
of  providing  loop  terminals  at  the  edge  of  the  loading  district  for 
such  lines,  the  San  Mateo  interurban  should  be  looped  via  Fifth, 
Mission  and  Sixth  and  run  out  Howard  Street  as  far  as  26th  Street. 
Ample  service  direct  out  Mission  Street  is  available  for  short-haul 
traffic. 

Mission  (Daly  City)  to  be  routed  from  the  stub  terminal  in  Fifth 
at  Market,  to  Howard,  to  14th,  and  thence  out  Mission  Street.  This 
line  is  taken  oflf  of  lower  Mission  Street  in  order  to  relieve  conges- 
tion resulting  from  the  necessary  diversion  of  new  Market  Street 
service,  and  inasmuch  as  it  is  designed  particularly  for  long-haul 
traffic,  this  should  not  be  a  hardship. 

Mission  (short  line)  comprising  all  short-run  tripper  service 
on  Mission  Street,  to  stub  in  Second  at  Market,  and  run  to  Onon- 
daga Avenue,  and  later  to  the  Visitacion  line,  as  traffic  develops. 
This  route  is  primarily  intended  for  short-haul  riders  during  the 
rush  period  only. 

Mission-24th  to  be  routed  to  its  present  terminal  during  the  day, 
but  during  the  rush  hour  half  of  the  service  to  be  short  run  to  the 
stub  in  First  at  Market  Street,  to  avoid  over-crowding  at  the  Ferry 
terminal. 

Sunnvside  to  be  short-run  via  First,  Folsom  and  Second  Street 
loop.  Serving  the  purpose  of  a  short-run  line  paralleling  the  Guer- 
rero Street  line,  it  is  unnecessary  to  run  to  the  Ferry. 

Tenth  and  Montgomery  to  utilize  the  Kearny-Washington-Mont- 
gomery loop. 

First-Fifth  appears  to  be  superfluous  and  may  be  discontinued, 
as  it  does  not  run  between  logical  terminals  and  serves  practically 
no  traffic.  If,  however,  present  operation  is  continued,  the  eastern 
termdnals  might  be  extended  on  split  headway  to  (1)  Kearny  and 
Bush  Streets;  and  (2)  to  California  and  Battery  Streets,  but  should 
preferably  be  stub-ended  south  of  Market  Street. 

Unchanged  Routes.  Ingleside,  Cemeteries,  Guerrero,  Bryant, 
Folsom,  Howard,  Eighth  and  Eighteenth,  Harrison,  San  Bruno, 
Sixth  and  Sansome,  and  Kearny  Street. 

Depot  Terminal  No  changes  should  be  made  in  terminal  ar- 
rangements at  this  point  until  the  plans  of  the  railway  company 
for  its  new  depot  are  disclosed.  At  that  time,  however,  no  cars 
should  be  allowed  to  stub-end  in  Third  Street  in  front  of  the  Depot, 
thereby  obstructing  the  through  traffic,  but  rather  in  Townsend 
Street  east  and  west  of  Third  Street. 


REROUTING  AND  SERVICE  DISTRIBUTION 


149 


California  Street.  Electric  tracks  have  been  laid  for  operation 
over  the  cable  tracks  from  Kearny  to  Market  Streets,  but  it  is  prac- 
tically out  of  the  questionf  to  superimpose  an  additional  route  upon 
the  Market  Street  traffic,  already  totaling  167  cars  per  hour  with  the 
four-track  plan,  until  the  elevated  Ferry  terminal  is  built.  Al- 
though it  might  prove  advantageous  to  operate  either  the  Sutter 
short  lines  via  Kearny  and  California  as  far  as  Market,  or  some  route 
from  south  of  Market  crossing  at  Third,  the  greatest  need  for  this 
California  Street  service  is  fulfilled  by  the  Kearny-Montgomery  ter- 
minal loop  for  west-bound  travel  and  by  extending  Sutter  Street 
service  to  the  Ferry.  As  the  actual  headway  of  cable  cars  is  now 
about  2j4  minutes  the  additional  capacity  for  through  electric  cars  is 
extremely  limited  unless  turnout  tracks  can  be  built  out  into  the 
Plaza  to  entirely  clear  the  present  cable  stub  terminalj 

REROUTING— OUTLYING   DISTRICT 

Several  factors  combine  to  make  an  ideal  routing  plan  impos- 
sible in  San  Francisco: 

1.  Adherence  to  rectangular  streets,  irrespective  of  contours. 

2.  Numerous  grades  impossible  for  street  railway  operation. 

3.  Interposition  of  extensive  unsettled  areas  such  as  parks 

and  cemeteries. 

4.  Absence  of  diagonal  thoroughfares  along  natural  low- 

level  routes. 

5.  Absence  of  parallel  distributing  thoroughfares  north  of 

Market  Street. 

6.  Limited   access   to    important   outlying   districts   except 

through  single  narrow  throats. 

7.  Necessity  of  adherence  to  old  routing  in  order  to  hold 

existing  franchises  against  possible  competitors. 

An  ideal  system  of  routing  should  provide  direct  service  over 
radial  trunk  lines  from  the  business  center  to  each  outlying  settled 
district  with  cross-town  lines  at  intervals,  providing  convenient  com- 
munication between  outlying  residence  sections  having  a  community 
of  interest.  This  ideal  is,  of  course,  impossible  here,  due  to  topo- 
graphical and  other  difficulties  above  mentioned.  But  this  plan  can 
be  approximated  to  a  certain  degree.  Particular  attention  should 
be  directed  to  the  development  of  the  direct  low-grade  routes  now 
available  as  a  means  of  extending  the  30-minute  time  zone,  which 
to  a  certain  extent  practically  fixes  the  limits  of  dense  settlement. 

tAssuminR  that  Geary  and  Sutter  Street  service  will  be  first  extended  to  the  Ferry. 
If  not,   then  the   California   extension   could   be   used. 

tCapacity  of  stub  terminal  with  through  operation  superimposed  is  discussed  on  paf« 
144  for  conditions  permitting  no  turnouts. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Short-run  Trippers.  To  partially  clear  the  streets  of  short- 
haul  riders  and  avoid  superimposing  this  class  of  traffic  on  long-haul 
cars,  the  use  of  short-run  "trippers"  is  both  desirable  and  necessary. 
Objection  is  often  made  to  this  form  of  operation,  but  it  is  the  logi- 
cal and  proper  way  to  distribute  service  according  to  the  traffic,  and 
to  avoid  much  useless  car  mileage  as  well  as  overcrowding  of  cars. 
In  order  to  pick  up  the  short-haul  traffic,  these  short-run  trippers 
should  precede  the  regular  through  cars.  While  this  unquestion- 
ably disturbs  the  regularity  of  the  headway,  it  is  evidently  not  im- 
practicable on  trunk  lines  having  frequent  service. 

Fast  Limited  Service.  An  effective  way  of  separating  long 
and  short-haul  loads  and  at  the  same  time  provide  rapid  transit  is  by 
the  institution  of  limited-stop  runs.  Inasmuch  as  San  Francisco 
has  no  streets  which  may  be  exclu^sively  devoted  to  rapid  transit 
cars,  the  best  that  can  be  done  is  to  operate  limited  cars  just 
ahead  of  locals,  so  as  to  give  the  fast  line  an  opportunity  of  making 
time  by  gaining  upon  the  next  preceding  local.  In  some  cases  pass- 
ing tracks  may  be  possible  to  enable  the  "limited"  to  clear  local  cars 
entirely.  This  class  of  service  is  particularly  desirable  on  direct 
lines  to  the  Ocean  beach  and  down  the  Peninsula. 

Topographic  Obstructions,  in  the  Western  Addition  district, 
the  obstruction  interposed  by  the  cemeteries  has  limited  the  number 
of  direct  through  routes  into  the  Richmond  district,  and  forced  the 
use  of  so-called  "Z"  Hues  such  as  Sutter-Jackson,  Turk-Eddy,  and 
Hayes-EUis.  In  some  cases,  as  the  Sutter- Jackson,  the  "Z"  line  is 
necessary  to  provide  through  service  between  the  northwestern  sec- 
tion and  the  business  district ;  but  wherever  possible,  a  direct  route 
should  be  adhered  to  as  closely  as  topography  permits,  in  the  inter- 
ests of  rapid  transit.  The  present  Ellis-Ocean  line,  which  carries 
patrons  fully  0.6  miles  further  than  necessary  between  the  terminal 
district  and  the  Park,  is  a  typical  example  of  the  inherent  defect 
in  "Z"  lines,  and  passengers  now  prefer  to  transfer  to  the  direct 
Haight  Street  line  at  Stanyan  Street  rather  than  ride  to  the  busi- 
ness district  over  an  indirect  route. 

South  of  the  Park,  Buena  Vista  Heights  prevent  direct  com- 
munication with  Market  Street  and  leaving  only  a  single  entrance 
throat  (Lincoln  Way)  from  the  north  to  the  Sunset  district,  except 
by  Park  crossings  or  the  Twin  Peaks  tunnel. 

Similarly,  the  Mission  throat  at  30th  Street  provides  the  only 
exit  to  the  south  except  the  crooked  San  Bruno  Road  or  the  Ken- 
tucky-Railroad Avenue  line  along  the  eastern  harbor  front  to  Visita- 
cion.  San  Jose  Avenue  furnishes  an  exit  through  the  Mission 
throat,  but  requires  the  development  of  Bernal  Cut  and  Circular 
Avenue  to  make  it  at  all  effective. 


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REROUTING  AND  SERVICE  DISTRIBUTION 


151 


Harbor  View  can  be  conveniently  reached  only  over  the  Van 
Ness  saddle,  and  requires  the  Fillmore  Street  tunnel  for  direct  com- 
munication from  the  south  and  the  Broadway  tunnel  from  the  east. 

The  upper  slopes  of  Eureka  and  Noe  Valleys  are  in  need  of  ser- 
vice, which  is  now  difficult  to  provide  due  to  impossible  grades,  but 
which  may  be  had  by  the  contour  extension  of  Market  Street. 

City  Plan.  To  partially  remedy  the  difficulties  arising  from 
these  unfortunate  conditions  certain  improvements  in  the  city  plan 
are  recommended  in  Chapter  12,  of  which  the  following  are  the  most 
important  as  regards  routing;  these,  however,  have  not  been  con- 
sidered as  part  of  the  immediate  rerouting  scheme:  (a)  improve- 
ment of  Bernal  Cut  and  Circular  Avenue;  (b)  Hayes  Street  cut; 
(c)  Park  crossings;  (d)  improvement  of  San  Bruno  Avenue;  (e) 
Market  Street  contour  extension;  (f)   Noe  Valley  tunnel. 

Rerouting  Plan 

From  a  study  of  the  riding  characteristics  of  different  routes 
as  found  by  actual  counts,  and  the  relative  volume  of  through  riding 
and  transfer  loads,  the  following  system  is  recommended  for  im- 
mediate adoption  by  the  United  Railroads.  In  working  out  these 
recommendations,  certain  minor  alterations  and  additions  to  the 
present  system  have  not  been  considered  as  standing  in  the  way  of 
the  rerouting  plans:  (a)  Pacific  Avenue  electrification;  (b)  double 
track  on  Post  Street  from  Leavenworth  to  Larkin;  (c)  additional 
special  work  where  necessary. 

The  principal  changes  made  in  the  present  plan  of  routing  in 
the  outlying  districts  are  listed  below,  and  should  be  studied  in 
connection  with  the  terminal  routing  previously  discussed. 

Hayes-Sunset  to  serve  Ninth  Avenue  by  the  present  route,  and 
in  addition  to  be  extended  out  to  20th  Avenue  via  Page  and  Oak, 
Stanyan  and  Lincoln  Way.  Every  third  car  to  run  over  the  Park- 
side  line,  thus  giving  direct  service  into  lower  Sunset  from  the 
downtown  district. 

Haight-Ocean.  Part  of  the  service  to  be  extended  to  the  Beach 
by  Stanyan  and  Lincoln  Way.  This  method  of  serving  the  Sunset 
and  Beach  districts  is  much  more  effective  than  that  of  hauling 
passengers  over  the  round-about  Ellis-Ocean  line,  and  will  result  not 
only  in  better  service  to  those  sections,  but  also  to  the  districts 
directly  tributary  to  the  Hayes  and  Haight  Street  lines,  where  ser- 
vice will  be  considerably  increased.  These  Sunset  and  Beach  cars 
should  all  be  routed  on  Mission  Street,  thus  leaving  a  great  part  of 
the  short-run  Haight  and  Hayes  service  on  Market  Street  as  at  the 
present. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Ellis-North  Richmond.  The  Turk-Eddy  and  the  ElHs-O'Farrell 
lines  should  unquestionably  be  interchanged  in  the  interests  of  more 
direct  routing  and  lower  running  time,  since  with  proper  cross-town 
service  there  appears  to  be  no  good  reason  why  these  two  lines 
should  intersect  on  Divisadero  Street.  This  proposed  line  preserves 
the  present  Turk-Eddy  service  into  north  Richmond  and  in  addition 
reaches  the  Southern  Pacific  Depot. 

Eddy-Hayes.  For  the  same  reason,  Turk  and  Eddy  Streets 
should  be  used  to  serve  more  directly  that  portion  of  Hayes  Street 
west  of  Divisadero  (now  served  by  the  Hayes-Ellis  line)  until  the 
Hayes  Street  Cut  is  completed. 

Eddy-South  Richmond  designed  to  serve  as  a  short-run  route 
from  Eddy  and  Market  Streets  to  the  present  Richmond  loop  via 
Turk  and  Eddy,  Divisadero,  McAllister  and  Fulton  to  Eighth 
Avenue,  thus  paralleling  McAllister  Street  and  furnishing  any  ad- 
ditional or  tripper  service  necessary  thereon.  This  line  will  provide 
a  much  more  direct  route  to  the  business  center  than  now  available 
for  a  large  part  of  the  east  Richmond  district,  and  on  Sundays 
or  holidays  could  be  easily  extended  out  Fulton  Street  to  the  Beach 
and  in  to  the  Ferry  as  a  fast  limited  line,  making  two  stops  only 
between  Market  and  Divisadero  Streets,  vis.:  Larkin  and  Fillmore. 
Streets.  The  use  of  single-tracked  streets  for  the  fast  service  is 
obviously  reasonable  on  account  of  decreased  vehicle  obstruction. 

Ellis  (Fillmore)-Jackson  designed  to  replace  the  present  Sutter- 
Jackson  line,  which  will  be  impossible  to  operate  at  the  Fillmore 
tunnel  entrance.  North  of  Sutter  Street,  the  route  will  be  same  as 
at  present  excepting  that  it  will  terminate  at  Jackson  and  Presidio 
Avenue,  instead  of  California  and  Presidio. 

Slitter  short  line  service  (now  furnished  by  the  Sutter-Jackson 
line)  to  be  furnished  by  one  operating  the  length  of  Sutter  Street, 
branching  off  at  Presidio  Ave.  and  California  St.,  thence  running 
north  to  Jackson  Street.  This  will  complete  the  service  now  furn- 
ished by  Sutter-Jackson. 

Post-{Polk) -Pacific  (new  route).  This  new  line,  although  re- 
quiring two  blocks  of  new  track  on  Post,  from  Leavenworth  to  Lar- 
kin Streets,  and  necessitating  electrification  of  the  Pacific  Avenue 
line,  is  one  of  the  most  logical  improvements  of  the  entire  system. 
Its  need  is  obvious,  providing  direct  downtown  service  to  the  large 
population  on  Pacific  Heights,  now  served  by  extremely  inadequate 
means.  It  should  preferably  use  the  Kearny-Washington-Mont- 
gomery collecting  loop,  rather  than  a  stub  terminal  in  Post  Street. 
Possibly  a  connecting  route  out  Jackson  Street  through  Fillmore 
Street  will  become  advantageous  as  this  route  develops. 


REROUTING  AND  SERVICE  DISTRIBUTION 


153 


Mission-Richmond  to  be  extended  out  Clement  to  13th  Avenue, 
instead  of  running  south  to  the  Park  as  at  present,  so  as  to  avoid 
doubling  back;  on  the  southern  end,  the  function  of  a  cross-town 
line  is  preserved  by  routing  via  22d,  Howard,  and  24th  to  Utah 
Street.  This  line  will  continue  to  furnish  a  direct  connection  be- 
tween Richmond  and  the  Mission  business  districts,  and  at  the  same 
time  provide  cross-town  service  which  will  enable  Richmond  resi- 
dents to  reach  any  part  of  the  Mission  district  with  a  sipgle  trans- 
fer, instead  of  two,  as  are  now  necessary. 

Market-Castro  to  be  extended  out  18th  to  Eureka  or  Douglass 
Streets  in  order  to  directly  serve  the  traffic  originating  in  Eureka 
Valley. 

Bryant- {Cortland)  to  be  extended  from  26th  and  Bryant  to  Cort- 
land and  Banks  via  Mission  Street  and  Cortland  Avenue.  Traffic 
counts  indicate  clearly  the  necessity  of  extending  this  route,  and 
it  will  provide  direct  downtown  service  to  the  Bernal  Heights  dis- 
trict, now  served  only  by  a  cross-town  connection. 

Mission  Short-Run  to  be  routed  out  Mission  Street  as  far  as 
Onondaga  during  rush  hours  only  to  relieve  all  long-haul  cars  using 
Mission  Street. 

San  Mateo  Interurban  to  run  on  Howard  instead  of  Mission  as 
far  as  26th  Street,  so  as  to  avoid  the  congested  districts,  and  operated 
with  limited  stops  as  far  as  the  County  line,  so  as  to  avoid  short- 
haul  traffic. 

Mission-Sixteenth  (new  line)  to  furnish  rush  hour  tripper  ser- 
vice only  from  Sixteenth  and  Bryant  to  Richland  Avenue,  via 
Bryant  and  Mission.  This  line  will  relieve  the  Fillmore-Sixteenth 
and  Bryant  Street  lines  of  the  excessive  transfer  load  now  encoun- 
tered at  Sixteenth  and  Bryant,  as  well  as  accommodate  Mission 
Street  short-haul.  It  should  be  extended  to  Kentucky  Street  along 
Sixteenth,  Seventeenth,  and  Eighteenth,  or  else: 

Fillmore-Sixteenth  should  run  more  cars  to  the  same  terminal. 

Valencia-Gough  to  be  extended  west  on  Sacramento  to  Presidio 
Avenue  and  stub-ended  at  Presidio  and  California,  which  is  a  more 
logical  and  convenient  terminal,  owing  to  its  importance  as  a  trans- 
fer point. 

SERVICE  REDISTRIBUTION 

In  the  assignment  of  service,  the  essential  points  to  be  considered 
are: 

First.  Does  the  car  loading  indicate  the  need  of  additional 
service  as  determined  by  (a)  results  of  throat  counts;  (b)  extent 
of  standing  load;  (c)  seasonal  variation;  (d)  standards  of  car 
loading? 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Second.  Do  the  earnings  justify  an  increase  in  car  mileage  as 
shown  by  (e)  earnings  and  passengers  per  car  mile;  and  (f)  aver- 
age passenger  haul  ? 

Third,  How  may  the  service  be  increased  with  the  minimum 
increase  in  operating  expense — dependent  upon  (g)  increased  speed 
vs.  more  cars;  (h)  suggested  improvements  in  city  plan;  (i)  ex- 
tensions and  short-haul  trippers;  (j)  car  barn  location  and  dead 
mileage  ? 

Determination  of  Increase  in  Service.  In  general,  there  are 
two  criterions  of  service : 

1.  Reasonable  headway  on  light  Hues; 

2.  Relative  loading  on  heavy  lines. 

If  a  light  line  is  to  operate  at  all,  it  must  maintain  a  reasonable 
headway — that  is,  5  to  10  minutes,  depending  upon  the  locality — 
whether  or  not  the  traffic  is  sufficient  to  fill  all  seats.  On  the  other 
hand,  the  headway  on  heavy  lines  is  entirely  a  function  of  the 
traffic  and  the  permissible  car  loading.  It  is  therefore  manifestly 
improper  to  base  the  increase  in  service  upon  the  average  car  load- 
ing for  the  entire  system,  but  must  be  determined  for  each  route 
separately.  Thus,  while  the  average  capacity  of  individual  elec- 
tric cars  is  175%  of  the  seats,  the  average  loading  on  the  entire  sys- 
tem for  the  heaviest  15-minute  period  of  the  day  was  only  about 
183%  indicating  that  but  little  additional  service  is  required — ob- 
viously an  erroneous  conclusion,  for  the  routes  carrying  an  excess 
over  the  comfortable  capacity  show  average  loading  of  224%  and 
on  some  lines  as  high  as  271%  of  seating  capacity. f 

Therefore,  of  the  several  methods  to  be  applied,  it  appears  that 
the  most  accurate  is  to  determine  from  throat  counts  during  each 
15-minute  period  of  the  rush  hour  how  many  additional  trips  are 
required  on  each  route  to  bring  the  loading  down  to  the  comfortable 
standard.  Moreover,  whenever  any  line  carries  so  much  long-haul 
traffic  that  passengers  are  required  to  stand  for  excessive  periods,  ad- 
ditional service  should  be  provided,  even  though  the  throat  loading 
is  below  the  comfortable  standard  specified  herein. 

The  loading  standards  fixed  in  Chapter  5  are  based  upon  the 
total  amount  of  standing  space  available  in  the  car  when  loaded 
uniformly,  but  owing  to  unavoidable  variation  in  loading  due  to 
sluggish  passenger  movement,  the  real  capacity  of  the  car  is  propor- 
tionately reduced.  On  this  account,  an  extra  margin  of  10%  has 
been  allowed  for  prepay  equipment  only  when  applied  to  an  average 
rush  period  rather  than  to  individual  cars. 

On  the  above  basis,  it  then  appears  that  under  traffic  conditions 
of  July,  1912,  65  additional  outbound  trips,  distributed  as  shown  in 

tFor  detailed  results  of  traflfic  counts,  see  Table  25. 


REROUTING  AND  SERVICE  DISTRIBUTION 


155 


FIGURE  38— DOWNTOWN   TRACKAGE  AND   RUSH  HOUR  CAR  SERVICE. 

Plan  of  present  trackage  showing  the  car  service  now  operated  in  cars 
per  hour,  and  the  direction  of  car  movement  on  each  street.  The  redis- 
tribution of  service  as  dcv  loped  from  traflfic  counts  is  shown  in  parentheses. 
The  changes  include  principally  increased  use  of  Mission  Street  and  of  the 
stub  terminals  south  of  Market,  and  the  more  even  usage  of  the  Western 
Addition  streets.  By  diverting  practically  all  of  the  necessary  increase  to 
Mission,  Market  Street  service  is  practically  limated  to  the  present 
amount. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Table  27,  were  needed  from  the  terminal  district  during  the  rush 
hour.  Using  the  present  routing,  this  added  service  will  call  for  an 
increase  of  about  740  car  miles,  or  14.4%  of  the  total  rush  hour 
mileage  of  the  system. 

If  the  service  over  present  routes  is  more  effectively  distributed 
by  the  operation  of  short-run  cars  to  logical  turn-back  points,  as 
recommended  herein,  the  total  saving  during  the  rush  hour  (amount- 
ing to  267  car  miles  or  5.2%)  reduces  the  net  increase  required 
over  the  present  to  9.2%  of  the  total  rush  hour  mileage. 

Applying  the  same  number  of  rush  hour  outbound  trips,  dis- 
tributed in  the  most  logical  manner  to  a  system  rerouted  as  recom- 
mended herein,  detailed  in  Table  26,  the  total  saving  in  rush 
hour  mileage  (355  car  miles  or  6%  below  that  necessary  for  ade- 
quate serine e  on  the  present  system)  reduces  the  net  increase  to  7.5% 
over  the  present.  That  is,  approximately  one-half  the  increase  in 
service  necessary  is  saved  by  th€  rerouting  plans. 

Present  Requirements.  Inasmuch  as  the  traffic  has  been 
increasing  1/2%  per  month,  the  above  estimates  are,  for  present 
traffic,  probably  too  low,  by  3>4%  or  19  trips,  making  a  total  neces- 
sary increase  of  84  trips.  And  it  will  thus  be  evident  that  in  order 
that  the  service  may  keep  pace  with  requirements  of  travel,  the 
Company  should  continue  passenger  counts  at  the  various  throats, 
to  intelligently  apportion  the  service   from  time  to  time. 

Finally,  it  appears  that  under  present  routing,  while  the  addi- 
tional rolling  stock  now  on  order  would  have  sufficed  for  increased 
service  in  July,  1912,  about  84  additional  cars  are  now  needed  as 
nearly  as  can  be  estimated  without  further  traffic  counts;  and  the 
records  of  passenger  traffic  indicate  that  at  least  3  new  cars  per 
month  are  now  required,  the  rate  increasing  as  time  goes  on. 

One  opportunity  of  reducing  this  demand  for  additional  equip- 
ment is  open  to  the  Company — 1.  e.,  by  an  increase  of  schedule  speed 
through  the  various  means  suggested  herein.  Since  1908  this 
speed  has  been  gradually  raised  to  8.5  miles  per  hour,  or  about  12% 
increase. 

Midday  Service.  Owing  to  the  large  extra  investment  neces- 
sary for  short  rush  periods,  the  standards  of  loading  as  fixed  are 
necessarily  high,  and  are  not  applicable  to  midday  operation,  when 
the  travel  is  fairly  constant.  On  most  lines  the  standard  of  a  seat 
for  every  passenger  should  prevail  except  that  for  short  noon  peaks 
some  standing  will  be  unavoidable.  Midday  service  on  light  lines 
must  necessarily  be  fixed  by  a  reasonable  headway  irrespective  of 
the  traffic  carried.  (See  reference  to  headway,  page  154.)t 

tPlate  6  shows  present  rush  and  day  headway. 


REROUTING  AND  SERVICE  DISTRIBUTION 


157 


■ION  J.  ARNOLD 


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FIGURE   39  —LOADING   CHARACTERISTICS   OF   TYPICAL   ROUTES. 

Indicating  the  great  variety  of  conditions  to  be  met  in  serving  long  and 
short-haul  lines  and  those  having  heavy  transfer  traffic.  *'A"  shows  the 
heavy  loading  of  south-bound  trunk  lines  at  Third  and  Kearny  Streets.  At 
"B"  practically  the  entire  Market  Street  load  transfers  to  the  Castro  Street 
cable.  At  "C"  half  of  the  load  transfers  to  and  from  Market  Street.  "E" 
shows  the  importance  of  cross-town  transfers  to  the  Union  Street  line.  "D" 
indicates  the  heavy  transfer  load  to  Ellis-Ocean  from  the  Haight  Street  ter- 
minus at  Stanyan  Street.  Observe  that  Sutter  Street  cars  reach  their  maxi- 
mum load  within  one-half  mile  of  Market  Street — ;.  e.,  east  of  Stockton  Street. 


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During  the  periods  of  light  travel,  day  and  night,  the  schedule 
speed  should  be  increased  to  the  maximum  to  compensate  for  the 
shorter  and  fewer  stops,  thus  effecting  a  saving  in  operation.  And 
with  long  headways,  prompt  dispatching  of  cars  is  necessary  so  as 
to  minimize  variations  in  headway.  Also,  schedules  should  he  care- 
fully arranged  for  the  maximum  accommodation  of  passengers  at 
transfer  points. 

Owl  Service.  This  is  an  indispensable  part  of  the  system  which, 
although  mostly  unprofitable,  must  be  maintained  as  a  public  accom- 
modation. A  maximum  headway  of  30  minutes  on  important  lines 
and  60  minutes  on  the  less  important  probably  represents  the  rea- 
sonable limits  of  convenience.  The  service  lines  at  present  operated 
require  one  extension — from  Haight  and  Stanyan  to  20th  Avenue 
via  Stanyan  and  Lincoln  Way. 

ROUTING    FOR   MUNICIPAL   SYSTEM 
Development   vs.  Competition 

As  presented  in  Chapter  3,  the  program  of  track  extensions 
recommended  for  a  unified  system  of  operation  (irrespective  of 
ownership)  may  be  segregated  into — (a)  lines  which  may  form 
part  of  a  municipal  system ;  (b)  lines  which  most  logically  form  part 
of  the  existing  private  system  ;  and  Cc)  additional  extensions  to  both 
miunicipal  and  private  systems  which  might  be  warranted  in  case 
direct  competition  should  prove  unavoidable.  These  would  neces- 
sarily involve  considerable  duplication  in  service  and  investment. 

In  Table  10.  "Extensions  to  Unified  System."  there  are  indicated 
certain  lines  which  should  be  built  first,  and  others  to  follow  there- 
after, all  of  which  may  be  regarded  as  practically  non-comipetitive 
or  development  lines  under  the  assumption  that  the  Municipal 
Railway  is  to  be  extended  largely  into  unserved  territory,  i.  e.,  to 
develop  new  territory.  In  a  strict  sense,  every  municipal  line  will 
be  competitive  in  that  it  subtracts  from  the  possibilities  of  the 
present  private  system.  This  is  particularly  so  in  the  Geary  Street 
line  itself.  However,  if  the  Municipal  system  is  expanded  with  the 
primary  object  of  developing  the  city,  rather  than  absorbing  as  much 
of  existing  traffic  as  possible,  such  a  policy  would  become  more  justi- 
fiable. 

Routing— Development  Lines.  Upon  this  l>asis,  certain 
routes  may  be  defined,  based  upon  the  extensions  listed  in  the  follow- 
ing table,  which  appear  to  be  warranted  at  the  present  time,  as 
traversing  territory  sufficiently  settled  to  enable  the  system  as  a 
whole  to  practically  pay  from  the  start.  Unless  at  least  a  part 
of  the  tunnel  program  is  carried  out.  Geary  Street  must  remain  the 


REROUTING  AND  SERVICE  DISTRIBUTION 


159 


principal  trunk  line  or  entrance  thoroughfare  into  the  business  dis- 
trict. And  on  account  of  these  limited  entrance  facihties,  cross- 
town  lines  with  transfers  must  be  depended  upon  to  an  unusual  de- 
gree, in  order  to  avoid  overloading  Geary  Street  with  an  excessive 
number  of  routes. 

MUNICIPAL  RAILWAY  ROUTES.* 
Largely  Development,  i.  e.,  Non-competitive 
NO 'tunnels  except  STOCKTON   STREET 

1.  Ocean— GEARY,  Thirty-third,  Balboa,  Forty-fifth,  Cabrillo  to  Beach. 

Short-run   to    Thirty-third   Avenue.t 

2.  Sunset — GEARY,  Tenth,  Park  crossing,  Judah  to  Twentieth.    Serves 

as  Geary  Street  short-run  to  Tenth  Avenue. 

3.  Qi^— GEARY,   Arguello,   California,   Thirty-third   to   Cliff.     Short- 

run  to  Thirteenth  Avenue. 

4.  Laurel  Hill  Loo/>— GEARY,  Presidio,  Washington,  Arguello,  Geary. 

Downtown  loop — Kearny,  Post,  Stockton  or  Grant  Avenue. 

5.  Presidio — GEARY,  Van  Ness,   Union,  Steiner,  Greenwich,   Baker  to 

waterfront;  short-run  to  Baker.  (To  Presidio  loop  during  Ex- 
position.) 

6.  Masonic  (Cross-town)— Cole,  Waller,  MASONIC,  Geary,  Presidio  to 

Pacific  (possibly  out  Washington  to  Arguello  Boulevard.)  Alter- 
native— split  via  Frederick,  and  Hugo  to  Seventh. 

7.  Van    Ness    (Cross-town) — From    Harbor    View    via    VAN    NESS, 

Eleventh  (or  Twelfth  if  Van  Ness  is  extended)  to  Potrero  Avenue. 
(Extend  down  Potrero  to  Army  Street  during  Exposition). 

8.  Stockton  Tunnel —SI OCKJ ON,  Columbus,  North  Point,  Van  Ness, 

Exposition;  extend  south  via  Fourth,  Bryant,  Third  to  Depot. 

9.  Potrero  —From  Market  via  Seventh,  Brannan,  POTRERO,  to  Army 

Street.  SpHt  with  Potrero  Hill  line.  (Extend  later  to  University 
Mound  via  San  Bruno  Road  or  Ocean  Shore  tracks,  Silver  Avenue 
and  Cambridge   Street). 

10.  Potrero  //»//— From  Market  via  SEVENTH,  Brannan,  Eighth,  Six- 

teenth, Connecticut,  Twentieth,  Arkansas  (regrade).  Split  with 
Potrero  Avenue. 

11.  Union   Street — As   at   present.     During   Exposition   additional   route 

from  Ferry  via  Columbus,  North  Point,  Van  Ness,  Exposition. 

WITH   TUNNELS^STOCKTON.   BROADWAY,   FILLMORE,   TWIN   PEAKS 

13.  Stockton-Chestnut  —¥vom  Depot  via  Third,  Bryant,  Fourth,  Stock- 

ton tunnel,  Broadway  tunnel,  Van  Ness,  CHESTNUT  to  Divisadero. 
Split  to  Exposition  loop. 

14.  Union  Street  (Low  Level)  — From  Ferries  via  Washington  and  Jack- 

son, Cblumbus,  Broadway  tunnel,  UNION,  Steiner,  Greenwich  to 
Baker  Street.  Split  to  Presidio  and  waterfront.  (Substitute  for 
Presidio  line  via  Geary  Street.) 

15.  Fillmore— From    Ferries    via    Market,    Geary,    FILLMORE   tunnel, 

(Siestnut  Street.     During  Exposition,  use  Main  and  Presidio  loops. 

16.  Fillmore-Church    (Cross-town)  —From    Chestnut    via    FILLMORE, 

Geary,  Laguna,  Guerrero,  Sixteenth,  CHURCH,  Chattanooga  tunnel 
to  Thirtieth   Street.     Split  on  Twentieth  to   Potrero  Avenue. 

17.  •  Masonic-Fillmore     (Cross-town)— Split     MASONIC    cross-town    at 

Geary  and  Presidio  via  Geary  and  FILLMORE  tunnel  to  Chestnut 
Street. 

•Trunk  lines  in  capitals.  •    .    %.     t 

tShort-run   routes   are  designed   for   short-haul   traffic   only   and   the  cart  switch  ba<:k 
after  this  short-haul  load  has  been  distributed. 


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1 60  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

18.  Tivin  Peaks  tunnel  lines  entirely  dependent  upon  entrance  possibili- 
ties into  Market  and  Mission  Streets.  Transit  center  in  Block 
No.  12  (bounded  by  Market,  Mission,  Eleventh  and  Twelfth),  with 
unusual  transfer  facilities,  appears  favorable  for  distributing  to  all 
points  of  the   city. 

Municipal  Competitive  System.  Assuming  that  a  com- 
petitive system  must  be  developed,  Fig.  10  indicates  the  possibilities 
of  such  development  by  various  construction  stages.  It  will  be 
noted  that  a  large  amount  of  existing  track  of  the  United  Railroads 
has  been  commissioned  for  Municipal  use  under  the  State  five-block 
law,  which  authorizes  joint  operation  (and  maintenance)  between 
two  independent  companies.  This  joint  trackage  amounts  to  as 
much  as  15  miles  out  of  a  total  for  the  system  of  about  110  miles 
(of  single  track),  of  which  about  80  miles  is  yet  to  be  built.  A 
total  investment  of  at  least  $6,5(X),000  is  involved  (including  a  prob- 
able equipment  of  over  300  cars),  exclusive  of  reconstruction  of 
existing  lines  upon  which  franchises  have  already  expired. 

In  spite  of  the  comprehensive  nature  of  this  Municipal  plan, 
many  districts  of  the  city  cannot  be  served  by  it  without  unwarranted 
investment,  and  even  then  the  results  would  in  many  cases  be  un- 
satisfactory, due  to  circuitous  routing.  While  the  Geary  Street  trunk 
line  is  well  suited  to  the  development  of  Richmond,  it  is  extremely 
difficult  to  obtain  adequate  downtown  terminal  facilities  for  Munic- 
ipal lines  projected  into  the  Mission,  and  all  the  possible  Mission 
routes  must  therefore  be  considered  as  inferior  to  existing  routes  in 
directness  and  desirability.  However,  the  best  stub  and  loop  ter- 
minals now  available  under  these  limitations  and  those  of  the  five- 
block  law  have  been  selected. 

On  the  other  hand,  for  service  in  a  northerly  direction  to  the 
Exposition,  the  Municipal  routes  are  well  located  for  direct  routing 
from  the  Mission.  And  the  Union  Street  line,  with  its  recommended 
extensions,  undoubtedly  gives  to  the  City  a  great  advantage  in  the 
matter  of  service  lines  from  the  Ferry  to  the  Exposition.  But  it 
must  not  be  lost  sight  of  that  although  these  routes  and  lines  may  be 
desirable  per  se,  the  absence  of  universal  transfers  necessarily  dis- 
courages the  freest  use  of  such  routes,  especially  when  operated  in 
competition  with  existing  routes  whose  patrons  enjoy  universal 
transfer  privileges.  Therefore,  the  practicability  of  many  of  these 
lines  depends  largely  upon  what  transfer  facilities  can  be  secured. 

This  is  particularly  true  in  the  case  of  Municipal  lines  to  be  op- 
erated through  the  Twin  Peaks  tunnel.  Whether  the  Market  Street 
subway  section  be  built,  or,  in  lieu  thereof,  two  additional  tracks  be 
run  on  Market  Street  from  Castro  Street  to  Van  Ness  Avenue  (as- 
suming this  right  can  be  obtained)  Municipal  lines  could  not  even 
then  reach  the  downtown  district  except  in  a  circuitous  manner,  un- 


REROUTING  AND  SERVICE  DISTRIBUTION 


161 


less  the  tunnel  lines  were  extended  over  an  elevated  structure  in 
Minna  Street,  as  indicated  in  Fig.  19.  Obviously,  therefore,  the 
success  of  the  Twin  Peaks  project  for  suburban  service  depends 
largely  upon  the  securing  of  through  routing  or  transfer  privileges 
with  existing  lines.  In  the  latter  case,  the  establishment  of  a  transit 
center  in  Block  12  (Market,  Eleventh,  Mission,  Twelfth)  would  be- 
come a  distinct  convenience. 

Rental  Basis.  These  conditions  suggest  the  desirability  of 
working  out  a  rental  plan  by  which  the  City  would  retain  ownership 
and  yet  secure  the  advantages  of  operation  as  part  of  the  larger  uni- 
fied system.  Such  a  plan  would  immediately  make  possible  many  of 
these  extensions  now  impossible,  yet  needed,  and  especially  would 
enable  the  entire  city  to  benefit  by  maximum  service  to  the  Exposi- 
tion on  the  most  direct  routes,  while  retaining  in  the  City's  hands 
the  indisputable  control  of  the  transit  lines  in  that  locality. 

Or,  in  lieu  of  rental,  it  is  quite  possible  that  an  interchange  of 
car  service  or  of  operating  rights  could  be  developed  so  as  to  pro- 
vide maximum  convenience  to  patrons  of  both  Municipal  and  private 
lines.  This  would  be  in  the  nature  of  ''through  route"  operation  be- 
tween independent  companies,  as  is  now  in  force  throughout  Chicago, 
and  only  requires  mutual  agreement  between  joint  operators  respect- 
ing equipment,  schedules,  power,  maintenance,  and  exchange*  of 
transfers. 

Parts  of  this  general  extension  plan  such  as  Church  Street  and 
Army  Street,  are  clearly  desirable,  and  yet  are  seriously  handicapped 
if  not  rendered  impracticable  by  lack  of  unification  and  transfers 
with  existing  lines.  Others  are  so  clearly  a  duplication  of  invest- 
ment for  the  purpose  of  competition  as  to  be  unwarranted  except 
under  extreme  conditions,  viz.,  the  Capp-Shotwell  loop  into  the 
Mission. 

In  conclusion,  the  only  logical  course  for  the  City  to  pursue, 
in  my  judgment,  unless  all  hope  of  co-operation  nnth  existing  com- 
panies must  he  abandoned,  is  to  install  such  Municipal  routes  as  are 
clearly  of  immediate  necessity  for  properly  serving  the  districts 
covered  and  to  secure  as  far  as  possible  through  route  operation  by 
rentals  or  exchange  of  operating  rights.  Until  the  Municipal  system 
establishes  itself,  without  question,  as  a  stable,  paying  investment 
(with  proper  allowances  for  maintenance,  depreciation  and  renewals, 
amortization  and  lost  taxes)  it  would  seem  unwise  for  the  City  to 
risk  its  credit  in  an  extensive  campaign  of  competition  under  the 
distinct  handicap  of  higher  operatine  costs  and  Hmited  transfer 
facilities.  For  it  clearly  must  depend  upon  its  credit  to  make  pos- 
sible the  large  bond  issues  necessary  for  future  railway  construc- 
tion. 


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162 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


MUNICIPAL  ROUTES— COMPETITIVE 

1.  Mission  Loop  —From  Army  via  Capp  and  Shotwell,  Howard,  Twelfth, 

Van  Ness,  GEARY.  During  Exposition  extend  via  Van  Ness  to 
Exposition  loop.  Alternative— via  Howard,  Ninth,  Larkin,  Turk 
and  Eddy  loop. 

2.  Church   Street— From   Mission   via   Thirtieth,   Church,   Chattanooga 

tunnel,  Market  (four-tracks).  Van  Ness,  GEARY. 

3  Army  (Cross-town)  —From  Kentucky  via  ARMY,  Church,  Twenty- 
sixth,  to  Castro.  (The  line  really  non-competitive,  but  dependent 
upon  transfer  from  competitive  lines.) 

4.  Masonic  Loop — From  Masonic  Avenue  via  Hayes,  Divisadero,  OAK, 
Van  Ness,  McAllister,  Larkin,  Turk-Eddy  loop. 

5  Scott-Twentieth   (Cross-town)  —From  Geary  Street  via  Pierce,  Ful- 

ton, SCOTT,  Duboce,  Noe,  Sixteenth,  Church,  TWENTIETH  to 
Potrero  Avenue. 

6  Buena  Vista— From  Buena  Vista  Heights  via  Park  Hill,  Fourteenth, 

Castro,  Duboce,  Scott  to  OAK  Street.  Split  with  Masonic  loop  Ime. 
7.    Laguna-San  Jose   (Cross-town)— From  Geary  via  LAGUNA,  Guer- 
rero, Seventeenth,  Valencia,  SAN  JOSE,  to  Bernal  Cut. 

DOWNTOWN  TERMINALS  (ALTERNATIVE) 
SOUTH   OF   MARKET   STREET   LINES 

(1)  SEVENTH  Street  lines  stub  at  Market  Street,  or 

(2)  SEVENTH    Street   lines   loop   via   Folsom,    Second,    Mission   and 

Seventh  Streets. 

(3)  FIFTH  Street  lines  loop  via  Folsom,  Second,  Mission  and  Fifth 

Streets.     (Alternative  entrance  to  Potrero  lines.) 

NORTH   OF   MARKET   STREET   LINES 

(4)  GEARY,   Kearny,   Post,   Stockton    (or  Grant  Avenue  and  Geary 

Street). 

(5)  LARKIN,  Turk,  Mason,  Eddy  and  Larkin  Streets. 

Location  of  Outer  Terminus  of  Geary  Street  Road 

Originally  the  intent  of  the  Geary  Street  bond  issue  was  to 
continue  the  operation  of  Geary  Street  cars  over  the  present  tracks 
on  Point  Lobos  Avenue,  thence  from  the  present  terminal  at  33d 
Avenue  over  the  tracks  of  the  United  Railroads  on  the  Clement 
Street  line  as  far  as  Cliff  Avenue ;  thence  to  construct  new  tracks 
along  Cliff  Avenue  to  48th  Avenue,  thence  around  Sutro  Heights 
to  the  Beach,  returning  by  the  same  route.  But  before  building  over 
this  route  the  following  points  should  be  determined : 

1.  Can  the  right  to  run  over  the  tracks  of  the  United  Railroads 
for  more  than  five  blocks  be  acquired?  (If  not,  this  probably  can 
be  done  by  acquiring  property  rights  between  38th  and  39th  Ave- 
nues, in  order  to  accomplish  the  extension  of  Cliff  Avenue  to  con- 
form to  the  five-block  joint  operation  law). 

2.  Can  the  standard  rolling  stock  operate  with  safety  on  the 
steep  grades  and  curves  of  the  road  to  the  beach  as  originally 
contemplated  ? 


REROUTING  AND  SERVICE  DISTRIBUTION 


163 


3.  Will  this  route  secure  in  the  best  manner  the  development 
of  west  Richmond? 

4.  Is  it  desirable  from  an  economic  standpoint  to  superimpose 
two  competitive  routes  serving  practically  the  same  outlying  ter- 
ritory ? 

Available  Streets.  A  study  of  the  grade  map  of  Richmond 
shows  only  two  available  outlets  to  the  beach—Point  Lobos  Avenue 
and  Cabrillo  Street— and  that  on  the  former,  west  of  47th  Avenue, 
there  is  about  3,200  feet  of  continuous  grade  of  8%  to  9.2%. 
Balboa  Street,  west  of  33d  Avenue  as  far  as  47th  Avenue  is  suit- 
able for  a  car  line,  but  only  two  descents  from  Point  Lobos  to  Bal- 
boa Street  are  available— 34th  Avenue  and  38th  Avenue.  Be- 
tween Balboa  and  Cabrillo  S'reets,  only  three  low-grade  passes 
exist  west  of  33d  Avenue — 45th  Avenue  (regraded  to  5.6%),  41st 
Avenue  (6.7%),  and  37th  Avenue  (5.8%). 

Thus  the  only  method  of  reaching  the  beach  and  avoiding 
the  long  and  dangerous  grade  around  the  Qiff  is  the  gfradual 
descent  from  Geary  to  Cabrillo  Street,  laid  out  to  follow  the  con- 
tours. Although  the  Cliff  House  grade  is  not  impossible,  it  is  cer- 
tainly not  advisable  with  standard  equipment,  if  it  can  be  avoided. 

Important  Connections.  The  development  of  Lincoln  Park 
will  probably  make  it  desirable  for  the  Geary  Street  road  to  reach 
the  main  Park  entrance  which  will  be  at  either  33d  or  34th  Avenue. 
This  can  readily  be  accomplished  by  joint  operation  over  the  pres- 
ent lines  of  the  Cement  Street  route  in  33d  Avenue,  and  thence  to 

any  desired  point. 

Sutro  Heights,  Sutro  Baths,  and  the  Cliff  House  are  at  present 
served  by  two  existing  routes  leading  from  the  business  district  by 
fairly  direct  lines. 

In  Golden  Gate  Park,  the  entrance  near  Spreckels  Lake  in 
37th  Avenue  offers  a  direct  path  to  the  Stadium,  and  connects  by 
a  logical  Park  crossing  with  the  Sunset  District  bv  a  cross-town 
route  already  planned  on  33d  Avenue,  as  far  as  Sloat  Boulevard. 

The  ocean  front  is  now  served  by  two  existing  routes,  whose 
carrying  capacity  is  taxed  to  the  utmost  on  Sundays  and  holidays. 

Development.  Owing  to  the  fact  that  Balboa  Street  is  in- 
termediate between  Geary  and  Fulton,  and  two  blocks  distant  from 
each,  it  is  reasonable  that  this  street  requires  and  will  be  most 
responsive  to  additional  transportation  throughout  its  length.  But 
as  it  is  impossible  to  descend  to  the  beach  without  very  extensive 
regrading,  the  following  routing  appears  to  best  meet  present 
requirements:  on  Geary  Street  to  33d  or  34th,  to  Balboa,  to  45th, 
to  Cabrillo,  to  the  beach;  return  by  the  same  route. 


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EXTENT    Or»TANOIN»LOAD» 

LOADINO  ZONES-  ya  OP  MAXIMUM   COAO 


NOTE  STANDING  LOADS  RErtRRtO  TO  SEATS 

LOAD  ZONES   INDICATE  RIOIM6  HABIT  ONC< 


FIGURE  40— LOADING   ZONES   AND   EXTENT   OF   STANDING   LOAD. 
The  general  character  of  rush  hour  travel  within  the  city  may  be  best 
indicated  by   zones  of  car  loading  at   various  points  along  the   route     (ex- 
pressed in  per  cent  of  the  maximum  load  on  the  car.)     Thus  the  100 A  zone 
or  loading  district,  shown  by  the  cross-hatched  area,  extends  far  down  into 
the  Mission,  and  the  half-load  zone  correspondingly   further.     That  portion 
of  the  system  shown  in  black  lines  indicates  the  extent  of  the  average  stand- 
ing load,  which  represents  the  portion   which  should  be  covered  by  short- 
run  routes.      The  long  standing  load  through  the  Mission  and  South  San 
Francisco  districts  as  compared  with  the  Western  Addition  travel  ,s  appar- 
ent, and  it  is  this  traffic  which  should  be  relieved  m  the  redistribution  of 
service  contemplated. 


REROUTING  AND  SERVICE  DISTRIBUTION 


165 


An  alternative,  designed  to  cover  the-  largest  amount  of  un- 
developed territory  in  west  Richmond  consists  in  separating  the 
Geary  Street  /extension  into  two  single-track  lines  as  follows, 
these  to  be  laid  on  one  side  of  the  center  line,  so  as  to  be  in  proper 
position  for  future  double-tracking  when  desirable:  Geary  Street 
to  33d  or  34th,  to  Anza,  to  39th,  to  Balboa,  to  45th,  to  Cabrillo,  to 
beach;  returning,  Cabrillo  to  37th,  to  Balboa,  to  33rd  or  34th,  to 
Geary.  This  separation  of  tracks  would  inclose  13  blocks,  but 
would  inconvenience  somewhat  passengers  residing  on  the  higher 
levels. 

Recommendation.  The  former  plan  is  recommended  for  the 
present  extension  of  the  Geary  Street  road  and  coupled  therewith 
the  ultimate  intention  of  extending  the  Balboa  Street  line  east- 
wardly  into  Turk  Street,  which  is  very  desirable  to  preserve;  for 
this  is  the  only  remaining  direct  thoroughfare  from  the  business 
district  to  the  beach,  unoccupied  by  car  lines  and  which  does  not 
present  impossible  physical  disadvantages  in  the  way  of  regrades. 
The  34th  Avenue  section  (or  33d  regraded)  in  Sunset  should  be 
extended  to  Golden  Gate  Park,  via  37th  and  a  connection  made 
with  Lincoln  Park  as  above  indicated. 

GENERAL    DISCUSSION   OF  TRAFFIC 
AND  SERVICE  IMPROVEMENTS 

As  a  means  of  determining  actual  riding  characteristics,  typical 
trip  counts  were  made  on  each  line  during  the  rush  hour,  which  in 
general  indicate:  (1)  standards  of  service:  (2)  desirable  limit  for 
effective  short-run  routes;  and  (3)  necessity  for  extension  of  the 
line — generally  indicated  by  abrupt  loading  or  unloading  at  the 
beginning  or  end  of  a  route.  (Observed  data,  Table  25.) 

Passenger  Flow.  These  results  in  composite  form  indicate 
the  actual  passenger  flow  in  various  streets  during  the  rush  hour, 
as  shown  in  Plate  9.  It  is  evident  that  for  most  efficient  operation, 
service  should  be  proportioned  to  the  traffic  as  near  as  possible  so 
long  as  a  reasonably  short  headway  is  provided.  In  rerouting  it  has 
been  the  aim  to  "taper  off"  the  service  by  the  provision  of  short- 
haul  runs  and  rush  hour  trippers,  so  as  to  conform  to  the  actual 
variations  in  traffic  shown.  In  this  regard  the  problem  is  analogous 
to  a  system  of  tapered  water  mains. 

Standing  Load.  Within  the  loading  district,  outbound  cars 
were  usually  filled  beyond  their  seating  capacity  before  reaching 
Third  or  Kearny  Streets,  and  this  standing:  load  continued  into  the 
Richmond,  Sunset  and  Western  Addition  districts  for  20  to  25  min- 
utes, and  as  much  as  40  minutes  into  some  parts  of  the  Mission,  rep- 
resenting about  a  6-mile  haul.    This  condition  is  clearlv  showti  in 


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1 66  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

the  load  zones  (Fig.  40).  The  great  extent  of  this  standing  load 
indicates  in  a  general  way  the  necessity  for  relief  by  short-haul 
trippers  within  these  same  limits. 

Average  Ride,  Although  the  riding  habit  in  San  Francisco  is 
very  high,  the  average  length  of  car  haul — 4.55  miles — is  low  as  com- 
pared, for  example,  with  Pittsburgh  5.13  miles,  and  Chicago  5.78 
miles.  Further,  the  average  passenger  ride  here  is  also  shorter — 
!  .68  miles  for  the  entire  system ;  or  reduced  to  a  basis  of  cash  passen- 
gers only,  this  corresponds  to  an  average  passenger  haul  of  2.4 
miles  for  a  single  fare.  Short  car  haul  may  be  an  indication  of 
profitable  operation — although  not  necessarily  so — but  the  combi- 
nation of  high  riding  habit  and  short  average  passenger  haul,  with- 
out question,  justifies  a  high  standard  of  service.  (See  Table  28.) 

Variation  in  Traffic.  To  provide  uniform  service  through- 
out the  year  the  conditions  of  travel  with  reference  to  the  increase 
in  service  necessary  to  meet  seasonal  variation,  as  well  as  normal 
growth,  require  continuous  study.  That  this  seasonal  variation  in 
San  Francisco  is  relatively  small  is  indicated  by  the  typical  records 
(Fig.  43),  and  this  fact  relieves  the  Company  from  a  large  amount 
of  investment  in  extra  equipment  idle  much  of  the  time. 

Route  Earnings,  An  accurate  impression  of  the  relative 
importance  of  the  various  lines  from  a  standpoint  of  traffic  and 
earnings  may  be  obtained  from  Fig.  41,  expressed  both  in  totals 
and  per  car  mile.  Thus,  the  total  earnings  of  the  six  heaviest  lines 
— Haight,  Valencia,  McAllister,  Ellis-Ocean,  Turk-Eddy  and  Mar- 
ket Street— are  about  2^^  times  the  average  for  the  system.  For  uni- 
formity, all  car-mile  ratios  have  been  calculated  on  the  basis  of  an 
average  car  of  44  seats,  irrespective  of  the  actual  type  operated,  on 
the  assumption  that  for  a  given  number  of  seats  per  hour  operated, 
the  same  riding  would  occur  regardless  of  the  size  of  the  car. 

Against  actual  earnings  of  about  36  cents  per  car  mile  for  the 
entire  system,  the  first  three  routes  mentioned  above  earn  about  50 
cents  per  car  mile,  and  the  Market.  Kearny  and  Powell  lines  about 
60  cents.  On  the  other  hand,  25  routes  earn  less  than  the  average  and 
ten,  including  the  Parkside,  Mail  Dock  and  Pacific  Avenue  lines, 
do  not  pay  average  operating  expenses.  One  route — Bosworth — 
carries  passengers  free.  This  diagram  clearly  emphasizes  the  fact 
that  a  railway  system  necessarily  consists  of  a  number  of  high  earn- 
ing lines,  and  many  that  do  not  pay  fixed  charges  or  in  some  cases 
even  operating  expenses. 

The  ratio,  total  passengers  per  car  mile,  is  a  relative  index 
either  of  car  loading  or  shortness  of  ride.  Thus,  the  cross-town  and 
transfer  lines  show  extremely  high  traffic  per  car  mile,  due  in  gen- 


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COMPARATIVE    RECORD    OF    TRAFFIC 

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FIGURE  41— COMPARATIVE   RECORD   OF  TRAFFIC  BY   ROUTES. 

Relative  importance  of  the  various  routes  shown  by  the  height  of  the 
solid  lines,  transfer  business  being  indicated  by  the  open  lines.  The  wide 
variation  in  the  earning  capacity  of  the  routes  is  apparent,  indicating 
that  a  system  is  necessarily  made  up  of  a  few  very  profitable  lines,  many 
of  average  earning  capacity,  and  some  that  do  not  pay  operating  ex- 
penses. 

Car  mile  ratios  have  been  reduced  to  a  common  basis,  assuming  a 
standard   44-seat    car.      The    earnings    are    generally   speaking,    high,    as 
compared  with  other  cities.    Eight  routes  earn  about  50  cents  per  stand 
ard  car  mile. 


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168 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


eral  to  short  haul,  while  on  the  Bryant  Street  line  it  is  due  to  limited 

service. 

The  effectiveness  of  cross-town  lines  such  as  Fillmore,  Kearny 
and  Polk,  is  shov/n  by  the  large  proportion  of  transfer  traffic,  rang- 
from  61%  to  9S%  of  the  revenue  traffic,  as  against  an  average  of 
43%  for  the  entire  system.  The  fact  that  the  Kearny  Street  line, 
in  addition  to  the  high  transfer  traffic,  carries  more  cash  passengers 
per  car  mile  than  any  other  electric  line,  is  evidence  both  of  heavy 
traffic  and  short  haul. 

Operating   Methods 
Transfer  System.     The  transfer  policy  of  the  United  Rail- 
roads in  some  respects  is  entirely  too  liberal,  although  the  intent 
is  to  allow  transfers  between  intersecting  lines  at  all  points  where 
round  trip  or  loop  riding  unJl  not  result.    How  completely  the  city 
is   covered   and   the   minimum   number   of  transfers   necessary   to 
reach  any  destination  from  an  originating  line  are  shown  in  the 
transfer  charts.  Fig.  42.     Transfers  are  punched  to  show  only  the 
time  limit  and  the  direction  the  car  is  moving,  the  destination  line 
not  being  indicated,  so  that  any  transfer  is  good  within  its  time  limit 
at  any  proper  intersection.     However,  with  the  excess  time  almost 
invariably  allowed,  the  use  of  a  transfer  as  a  stop-over  becomes  an 
easy  matter.    Passengers  may  transfer  on  a  transfer  by  using  cross- 
town  lines   (Polk,  Fillmore,  Kearny)   which  validate  all  transfers 
without  lifting  them,  or  else  they  are  entitled  to  a  second  transfer 
only  restricted  to  terminal  lines.   On  the  two  downtown  cross  lines — 
f.  e.,  Kearny  and  Polk  Streets — there  is  no  limitation  as  to  direction 
on  the  transfers.    A  study  of  this  transfer  system  reveals  the  follow- 
ing discrepancies  and  desirable  changes: 

1.  The  lists  of  transfer  points  printed  on  the  slips,  which  is  the 
only  information  available  to  the  public,  are  incomplete. 

2.  The  opportunity  for  error  on  the  part  of  the  conductor  is 
increased  by  the  similarity  in  appearance  of  all  transfers.  The  va- 
rious routes  should  preferably  be  identified  by  distinctive  colors. 

3.  No  complete  record  of  transfers  is  kept,  so  as  to  cover 
cross-town  lines.  All  transfers  collected  or  validated  should  be  re- 
corded either  by  exchanging  transfers  or  by  using  a  form  of  split 
transfer  having  a  detachable  slip. 

4.  Routes  operated  on  the  same  street  do  not  provide  uniform 
transfer  privileges. 

5.  Round  trip  riding  is  not  eliminated  and  could  justly  be 
reduced  by  limiting  the  sequence  of  issuing  transfers  in  certain 
cases.  Some  of  the  round  trip  rides  now  possible  are:  (a)  from 
Stanyan  and  Haight— east  on  Haight,  south  on  Fillmore,  stop-over, 
west  on  18th  to  end  of  line,  on€  block  from  starting  point,     (b) 


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FIGURE  42— GRAPHICAL  RECORD  OF  TRANSFER  STATUS. 
This  answers  the  question  whether  transfer  facilities  in  San  Francisco 
are  liberal  or  otherwise  by  indicating  the  transfers  granted  from  any  line 
in  the  city  to  any  other  line,  and  the  number  of  transfers  necessary  if  a 
direct  transfer  is  impossible.  Black  spaces  indicate  unlimited  transfer  in 
both  directions ;  black  triangles,  limited  transfer  in  one  direction  only. 
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given.  Some  additional  transfers  are  now  allowed  as  shown  by  the  cross- 
hatched  squares,  in  addition  to  the  transfers  shown  in  black,  which  represent 
those  actually  printed  on  the  transfer  slips,  and  there  are  comparatively  few 
points  indicated  by  the  dotted  areas  where  further  transfers  should  be 
given. 


! 


V.'^ 


t'       1 


i  II 


170 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


from  19th  and  Sloat  Boulevard— inbound  via  Ingleside,  stop-over 
in  city,  outbound  via  Ellis  &  Ocean,  to  Parkside  south  returning  to 
starting  point. 

Speed.  I'nder  present  ordinances  the  City  imposes  the  fol- 
lowing restrictions  on  car  speed,  the  limits  fixed  probably  referring 
to  maximum  rather  than  schedule  speed: 

North  of  Market — 

10  m.  p.  h.  east  of  Larkin. 

12        "         between  Larkin  and  Divisadero. 

15         "         west  of  Divisadero. 

South  of  Market — 

10  m.  p.  h.  north  of  Division  and  Ninth. 
12         "         north  of  Duboce,  Castro  and  18th. 
15         "         south  of  Duboce,  Castro  and  18th. 
For  undirected  vehicles  such  as  automobiles,  the  limit  applied 
is  8  m.  p.  h.  within  the  fire  limits  and  12  m.  p.  h.  outside.  These  speed 
limits  as  applied  to  street  cars  should  be  either  raised  or  removed 
since  they  are  impossible  of  fulfillment  if  the  railroad  is  to  operate 
at  all.    To  obtain  a  reasonable  schedule  speed  and  at  the  same  time 
keep  acceleration  and  retardation  rates  within  limits  comfortable  to 
passengers,  speeds  of  from  15  to  20  m.  p.  h.  between  stops  must  be 
reached.     The  convenience  of  the  riding  public  is  predominant,  and 
it  is  illogical  for  the  City  to  place  burdensome  restrictions  upon 
directed  vehicles  under  power  brake  control  upon  which  practically 
the  entire  population  of  the  city  depends  for  transportation.     Every 
reasonable   facility   should  be  aflForded  the   railway  to  inaugurate 
the  fastest  possible  schedules  consistent  with  safety. 

Running  Time.  The  great  variation  in  running  time  to  various 
parts  of  the  city  is  accurately  shown  in  the  time  zone  map,  Plate  3. 
Thus,  in  Richmond,  33rd  Avenue  is  reached  in  30  minutes  while 
on  Union  Street  the  30-minute  zone  only  reaches  the  Presidio, 
and  on  Lincoln  Way  via  Ellis  &  Ocean  only  Ninth  Avenue.  Like- 
wise it  is  possible  to  go  30%  further  south  in  the  Mission  than  via 
San  Bruno  Avenue.  Roughly  speaking,  the  30-minute  zone  ex- 
tends from  Baker's  Beach  to  South  Basin,  embracing  about  one- 
half  of  the  city.  It  is  safe  to  say  that  by  logical  and  direct  routing, 
running  time  on  some  lines  may  be  improved  perhaps  one-fifth, 
particularly  into  Sunset,  Merced  and  San  Bruno  districts.  In  many 
cases,  shorter  and  fewer  stops  may  be  taken  advantage  of  to  con- 
siderably increase  midday  schedule  speed. 

Tandem  Operation.  Two-car  stops  and  crossings  have  been  put 
into  practice  on  Market  Street  with  marked  success.f     The  crossing 

■^his   improvement    was   recommended    in    Chapter   6 — Relief   of   Congestion   on    Lower 
Market  Street. 


I 


!f 


REROUTING  AND  SERVICE  DISTRIBUTION 


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FIGURE  43— TYPICAL  SEASONAL  VARIATIONS   IN   CITY  TRAFFIC. 

Railway  service  in  San  Francisco  is  unusual  in  the  slight  variation  from 
season  to  season,  as  compared  with  other  cities.  These  curves  show  typi- 
cal traffic  characteristics  of  various  routes  in  the  record  of,  (a)  passengers 
carried;  (b)  car  miles  run;  and  (c)  ratio,  passengers  per  car  mile.  Car 
mileage  should  be  approximately  proportional  to  the  travel;  and  under  ordi- 
nary conditions,  if  service  has  been  properly  distributed  from  time  to  time,  the 
ratio — ^passengers  per  car  mile  on  any  line — should  remain  about  constant, 
which  fumis)i€s  an  index  of  how  much  attention  is  paid  to  variation  of  traf- 
fic and  proper  service  distribution.  Within  certain  limits  this  ratio  indicates 
also  the  relative  loading  of  cars. 


1  72  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

capacity  at  congested  points  has  been  practically  doubled,  and 
about  ten  minutes  delay  in  running  time  on  Market  Street  has  been 
eliminated.  But  the  enlarging  of  the  loading  platforms  to  the 
recommended  dimensions  and  a  systematic  method  of  car  dispatch- 
ing still  remain  to  be  perfected,  especially  in  connection  with  the 
additional  traffic  expected  from  Geary  and  Sutter  Streets. 

Limited  Stops.    While     in     the     loading     district     frequent 
stops  are  to  an  extent  unavoidable,  it  is  necessary  to  increase  the 
spacing  in  the  outlying  districts  in  order  to  attain  a  more  satis- 
factory speed.    A  minimum  distance  between  stops  of  500  ft.  is 
entirely  reasonable,  and  even  this  permits  a  schedule  speed  of 
only  about  7  miles  per  hour  if  all  stops  are  made.    In  the  Western 
Addition   the    stops   are    fortunately   spaced   as   much   as   481    ft. 
apart  along  trunk  lines ;  but  in  the  Richmond  and  Sunset  districts 
the  blocks  east  and  west  are  only  310  ft.  long,  which  practically 
necessitates  stops  at  alternate  streets.    This  should  not  be  regarded 
as  a  hardship,  especially  since  it  is  just  about  equivalent  to  ^^sopa 
every  block  in  the  north-south  direction.    In  such  localities,  discrimi- 
nation could  be  avoided  by  stopping  inbound  cars  at  even  numbered 
and  outbound  cars  at  odd  numbered  streets.     In  future  subivisions. 
care  should  be  taken  to  approximate  a  500  ft.  block  with  the  long 
side  in  the  direction  of  trunk  lines. 

In  all  parts  of  the  city  where  the  stopping  point  is  not  clearly 
defined  by  street  locations,  white  posts,  suspended  signs,  or 
trolley  poles  painted  white  should  be  used  to  fix  the  location, 
especially  where  stops  at  alternate  streets  are  made. 


STOPS  PER  MILE 


Street 


Section 


Possible 
stops  per 

mile 
Average 

10.0 


11. 

17. 

It. 

13. 
10 


Polsom Ferry  to  Army 

Sutter  and  ^     .  .  ^  , 

Sacramento. .  Market  to  1st  Avenue.. 

California 1st  Ave.  to  33id* 

3rd  &  Kearny Broadway  to  Berry 

Kentucky King  ro  33rd  Ave 

Market Ferry  to  Castro 

McAllister Market  to  1st  Ave 10 . 7 

Pulton 1st  Ave.  to  48th* 16-5 

Sacramento Market  to  Fillmore 114 

Polk  and  Larkin. .  Market  to  Lombard  . 

Fillmore Market  to  Broadway. 

Haight Market  to  Stanyan  . . 

Lincoln  Way 1st  to  48th* 

Mission Ferry  to  26th 


15  4 
14.6 
10.9 
16.5 
8.6 


Oeary Market  to  Presidio HI 

Geary Presidio  to  10th  Ave.*.. .         17.8 

*Alternate  stops  should  be  made. 


Actual 
stops  per 

mile 
Average 

10.0 

9.0 
12.5 
11.6 

7.7 

6.9 

9.8 

6.0 
11  4 
14.8 
14.2 
10.9 

5.0 

7.5 

9.4 
16.1 


fc  Actual 

stops  to 

possible 

stops 

100.0 

79.0 
72.2 
100.0 
.58. 4 
65.6 
91.5 
37.4 
100.0 
96.0 
97.4 
100.0 
30.2 
87   1 
84.7 
90.3 


Average 
distance 

Actual 
528  ft. 

587  " 
422  " 
45.'^  " 
686  " 
764  " 
538  " 
880  " 
464  *• 
356  '• 
372  •* 
485  " 
1056  " 
703  " 
562  " 
328  " 


REROUTING  AND  SERVICE  DISTRIBUTION 


173 


"Car  Full"  Signs.  While  generally  distasteful  to  the 
American  public,  this  method  of  securing  limited  loading  of  cars 
is  justifiable  to  avoid  extreme  variations  in  loading  and  headway, 
and  increase  schedule  speed  by  making  fewer  and  shorter  stops. 
Better  service  will  in  the  end  result,  provided  of  course  that  a 
sufficient  number  of  cars  are  operated. 

Headway.  Variations  in  headway  during  the  rush  hour 
are  often  unavoidable,  resulting  from  the  excessive  congestion 
and  delays  at  street  crossings  and  loading  points.  Numerous 
observations,  however,  show  that  even  during  the  midday  there 
is  a  wide  variation  in  headway,  which  could  be  reduced  by  a  more 
careful  system  of  dispatching  and  inspection,  especially  at  ter- 
minals. In  many  cases  one  car  "creeping"  on  series  to  avoid 
overrunning  its  schedule  at  terminal  may  disarrange  the  headway  of 
an  entire  t'  ink  line. 

Electric  Switches.  The  present  use  of  electric  switches 
controlled  by  the  motorman  from  the  car  platform  is  commenda- 
ble, and  important  branch-offs  should  be  so  equipped  in  order 
to  reduce  delays  at  intersections. 

Observed  Infractions  of  Operating  Rules,  and  Suggested 

Revisions 

1.  Trainmen  not  to  smoke  while  on  duty.  Passengers  on 
owl  cars  not  to  smoke  in  closed  section  of  car. 

2.  Cars  to  be  started  only  after  signal  from  conductor.  In- 
spectors or  traffic  police  should  stand  at  rear  step  and  prevent  pas- 
sengers from  boarding  after  rear  platform  is  crowded  and  car  is 
ready  to  proceed. 

3.  As  the  topography  of  the  route  dictates  the  rules  to  be  fol- 
lowed by  cable  cars,  special  rules  are  necessary  for  each  separate 
line.  A  far-side  stop  at  all  street  intersections,  and  especially  at 
railway  intersections,  should  be  used  in  preference  to  a  near-side 
stop,  thus  minimizing  the  chance  of  accidents  if  a  defective  cable 
should  make  it  impossible  to  control  the  car. 

4.  Over-crowding  of  cars  until  the  rear  platform,  fenders  and 
wheel  guards  are  used  by  patrons  can  not  be  remedied  except  by 
the  addition  of  more  cars  to  the  service. 

5.  Bulky  packages  permissible  on  cars  should  be  loaded  on 
front  platform  instead  of  being  carried  through  car,  and  only 
when  passengers  are  not  delayed  in  transit. 

6.  Both  trainmen  should  not  leave  the  car  at  the  same  time 
during  a  blockade  or  while  car  is  delayed  on  its  run. 


m 


I  74  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

7  At  intersections,  cars  on  straight  tracks  should  have  right 
of  way  over  ''branch  oflf"  cars.  Cable  cars  should  have  unques- 
tioned right  of  way  over  electric  cars,  and  should  use  this  advantage 
in  making  far-side  stops.  This  rule  is  imperative,  but  mfractions 
are  common  (as  at  Sutter  and  Powell  Streets). 

8.     Conductors  should  announce  all  streets  and  transfer  routes. 

9  Route  signs  should  be  correctly  displayed  and  changed  to 
indicate  the  destination  of  the  next  half  trip  at  the  terminal  only. 
If  it  is  necessary  to  "short  run"  a  single  car,  an  announcement  by 
the  conductor  to  all  boarding  passengers  and  the  issuing  of  emer- 
gency transfers  should  be  required. 

10.  Cars  should  not  leave  transfer  points  so  quickly  as  to  pre- 
vent the  transfer  of  passengers  from  an  intersecting  car  that  has 
reached  the  stopping  point  before  the  waiting  car  is  ready  to  pro- 
ceed. This  rule  should  be  followed  on  cross-town  Imes  especially^ 
and  on  all  lines  during  the  light  hours  of  travel. 

11.  Reckless  running  on  heavy  down  grades  to  make  up  time 
should  be  distinctly  prohibited,  and  penalized. 

12.  Power  should  be  shut  off  at  street  intersections  whether 
or  not  a  stop  is  made. 

13.  Gong  should  be  sounded  before  cars  are  started. 

14.  Gates  on  the  front  platform  of  a  prepay  car  should  be 
opened  at  every  stop,  to  encourage  forward  movement  through  the 

car. 

15.  Buzzer  signals  operated  by  passengers  should  be  recognized 
by  the  motorman  without  additional  signal  from  the  conductor. 


PART  III 
IMPROVEMENTS  IN  ROLLING  STOCK 


Chapter  8.     Design  of  New  Rolling  Stock. 
Chapter  9.     Improvements  in  Existing  Rolung  Stock. 


i 


'n\ 


CHAPTER  8 

DESIGN  OF  NEW  ROLLING  STOCK* 

Municipal  Railway  Cars,  Geary  Street  Line 
United  RaUroads  1912  Car,  "California"  Type 

A  verp  important  factor  in  determining  the  attitude  of  the  public  to- 
ward a  street  railroad  is  the  adequacy  of  the  equipment  used;  and  where 
the  road  is  municipally  operated  it  is  especially  important  to  maintain  the 
highest  standards.  The  essentials  are:  (a)  comfort  of  passengers  con- 
sistent with  reasonable  capacity:  (b)  rapid  loading  and  unloading;  and 
(c)  minimum  interference  with  other  vehicles.  This  chapter  embodies  de- 
tailed recommendations  for  the  construction  of  the  municipal  railway  cars^ 
covering  type,  general  design,  and  seating  and  platform  arrangements;  also 
recommendations  for  modifying  the  proposed  design  of  the  new  1912 
United  Railroads  car,  calculated  to  make  it  more  suitable  either  for  (a) 
standard  equipment,  or  (b)  operation  on  special  lines  only. 

I.    MUNICIPAL  RAILWAY  CARS 

After  close  observation  of  the  various  types  of  cars  in  use  in  this 
city,  in  Oakland,  Berkeley,  and  the  other  bay  cities,  and  taking  into 
consideration  the  weather  conditions  that  prevail  in  the  City  of  San 
Francisco  throughout  the  year,  I  am  of  the  opinion  that  a  car  having 
a  closed  section  and  one  or  more  open  sections  will  be  more  satis- 
factory to  the  patrons  of  the  Geary  Street  line  than  a  completely 

closed  car. 

I  am  also  satisfied  that  if  such  a  type  of  car  can  be  equipped,  in 
the  main,  with  cross  seats  which  can  always  be  made  to  face  for- 
ward, the  advantages  of  having  the  combination  of  the  open  and 
closed  feature  with  the  cross-seat  feature  will  be  instrumental  in 
encouraging  traffic  which  would  otherwise  be  lost  if  the  line 
were  equipped  with  closed  cars. 

If,  to  the  above  advantages,  there  is  added  the  pay-as-you-enter 
principle  properly  applied,  which  has  proven  to  be  advantageous 
in  other  cities,  not  only  in  the  reduction  of  the  number  of  accidents 
to  passengers,  but  otherwise,  a  car  will  be  secured  which  in  my  judg- 
ment will  be  best  adapted,  all  things  considered,  to  the  San  Francisco 
climate  and  to  the  Geary  Street  line. 

In  determining  a  suitable  seating  arrangement  of  the  car,  various 
combinations  of  seats  have  been  considered,  with  the  object  of  de- 

*Formerly  Preliminary   Reports   No.    1    and   7-1,    submitted    Feb.    7.    and   Aug.    21.    1912. 


\i 


1  78  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


I 


NEW  ROLLING  STOCK 


179 


FIGURE   44— NEW   MUNICIPAL   RAILWAY   CAR. 

Embodying  the  most  advanced  standards  of  comfortable  seating  arrange- 
ment, quick  loading  and  unloading,  rapid  operation  and  safety  m  a  "Cali- 
fornia type"  prepayment  car.  This  design  conforms  to  the  Chicago  standard 
making  it  possible  to  save  18  inches  from  the  width  of  roadways  while  still 
preserving  ample  passenger  carrying  capacity  according  to  standards  that 
may  be  properly  imposed  by  the  municipality  in  railway  service  either  on 
its  own  lines  or  those  of  private  companies.  This  car  can  comfortably  ac- 
commodate from  80  to  90  passengers,  or  105  in  emergencies,  without  undue 
crowding.  During  the  first  few  days  of  operation  loads  as  high  as  14i) 
passengers  per  car  were  carried. 

termining  upon  an  arrangement  which  would  provide  maximum 
comfort  to  passengers  together  with  adequate  capacity  for  handling 
loads  at  times  of  maximum  travel.  Fundamentally,  a  car  adapted 
for  handling  maximum  loads  (that  is,  one  possessing  the  maximum 
number  of  seats  as  well  as  the  maximum  carrying  capacity)  is  a 
car  equipped  throughout  its  length  with  longitudinal  seats  facing  in- 
ward. On  the  other  hand,  the  car  providing  maximum  comfort  for 
passengers  and  minimum  overload  capacity  is  one  equipped  with  cross 
seats  throughout  its  length,  facing  forward.  The  problem,  there- 
fore, is  to  provide  a  car  which  will  give  maximum  comfort  to  the 
greatest  number  of  seated  passengers,  and  at  the  same  time  provide 
sufficient  reservoir  or  storage  space  for  standing  passengers  so  as 
to  rapidly  absorb  the  inflow  of  passengers  at  times  of  maximum 
travel ;  and  I  believe  the  arrangement  above  recommended,  seating 
44  people  comfortably,  will  best  meet  the  conditions  prevailing  on 
the  Geary  Street  line  and  its  probable  connections. 


Specifications  for  both  steel  and  semi-steel  cars  for  this  line, 
previously  prepared  by  engineers  for  the  City,  have  been  submitted 
to  me  and  they  call  for  thoroughly  first-class  construction  and  show 
evidence  of  careful  design ;  and  had  cars  built  to  these  specifications 
been  purchased  by  the  City,  the  line  would  have  been  equipped 
with  high-grade  rolling  stock  of  the  closed  type.  But  in  review- 
ing these  plans  and  specifications  it  has  occurred  to  me  that 
certain  modifications,  if  adopted,  would  make  a  car  some- 
what lighter  and  I  believe  better  adapted  for  service  on  the  Geary 
Street  line,  the  principal  changes  being  as  follows : 

1.  The  abandonment  of  the  fully  closed  car  body  feature, 
and  the  substitution  therefor  of  a  partly  closed  and  partly  open  body 
type  with  the  closed  part  in  the  middle  and  the  open  parts  at  the 
ends. 

2.  The  substitution  of  raise  sash  in  the  closed  portion 
of  the  body  for  drop  sash,  thus  permitting  a  lighter  and  nar- 
rower construction,  the  recommended  car  being  8'  6"  wide  instead 
of  8'  9". 

3.  The  elimination  of  glass  windows  in  the  open  parts 
of  the  car,  leaving  only  flexible  drop  curtains,  thus  saving  some 
weight  and  the  cost  of  furnishing  and  maintaining  windows  and 
sash. 

4.  The  substitution  of  the  arched  roof  for  the  monitor 
deck  type,  the  former  making  equally  as  good  as  well  as  a  lighter 
and  stronger  car  for  less  first  cost  and  also  one  which  will  permit  ade- 
quate ventilation  in  the  closed  part  of  the  car  by  means  of  automatic 
ventilators  of  a  suitable  type. 

5.  The  introduction  of  automatic  exhaust  ventilators  in 
the  closed  portion  of  the  car  with  provision  for  ingress  of  fresh 
air  when  the  doors  of  the  closed  compartment  are  closed. 

6.  The  rearrangement  of  the  operating  apparatus  on  the 
platforms,  such  as  controllers,  air-brakes,  hand-brakes,  etc.,  changes 
in  the  design  of  the  guide  rails,  and  the  adoption  of  the  small 
master  controller  of  the  remote  control  system,  all  of  which  will 
greatly  increase  the  reservoir  capacity  of  the  platform  and  permit 
rapid  loading  by  allowing  a  greater  number  of  passengers  prompt 
access  from  the  street  to  the  platform.  This  will  enable  the  car 
to  start  and  get  away  quickly  instead  of  waiting  for  these  passen- 
gers to  file  singly  by  the  conductor  before  the  starting  signal  may  be 
given. 

7.  The  retaining  of  the  advantages  of  the  cross-seat 
feature  and  adding  four  additional  cross  seats  (all  of  which  are 
located  in  the  open  section  of  the  car)  thus  permitting  part  of  the 
outside  riders  to  ride  face  forward  instead  of  facing  inward,  al- 


! 


INTENTIONAL  SECOND  EXPOSURE 


178 


SAN  n<ANCISCO  TRANSPORTATION   FACILITIES 


NEW  ROLLING  STOCK 


179 


|.|,;(   UK    44_XK\\     MINKIPAL    RAILWAY    CAR. 

l.nilxxlvin^  llu-  most  atlvanctMl  standards  of  comfortable  seating  arrange- 
ment, quick  loading  and  unloading,  rapid  operation  and  safety  in  a  **Cali- 
fnrnia  tvpe"  prepavment  car.  This  design  conforms  to  tlie  Chicago  standard, 
making  it  possible  to  save  18  inches  from  the  width  of  roadway-,  wlule  still 
preserving  ami)le  passenger  carrying  capacity  according  to  standards  that 
may  he  i)roperlv  imposed  by  the  municipality  in  railway  service,  either  on 
its  own  lines  or  those  of  private  companies.  This  car  can  comfortably  ac- 
commodate from  80  to  90  passengers,  or  105  in  emergencio.  without  undue 
crowding.  During  the  first  few  days  of  operation  loads  as  high  as  143 
passengers  per  car  were  carried. 

tcniiiiiiniL;-  iiimmi  an  arraiii.;cnKMit  which  would  pn>vi(lc  niaxinuini 
comfort  to  passcii.^crs  toorethcr  with  acleqiiatc  capacity  for  handHui; 
loads  at  times  of  maximum  travel.  Inmdamcntally,  a  car  adapted 
for  handliiiir  maximum  loads  (that  is.  one  possessinir  the  maximum 
numher  of  seats  as  well  as  the  maximum  carryinij:  capacity )  is  a 
car  equipped  throus.jhout  its  len.u:th  witli  loni^ntudiual  seats  facinj^  in- 
ward. On  the  other  hand,  the  car  providing;-  maximum  comfort  for 
passengers  and  minimum  overload  ca])acity  is  one  ecjuipped  with  cross 
seats  throuL^hout  its  leni^th,  facin|nr  forward.  The  ])rol)lem.  there- 
fore, is  to  provide  a  car  which  will  i^ive  maximum  comfort  to  the 
oreate.st  number  of  seated  ])assengers.  and  at  the  same  time  provide 
sufficient  reservoir  or  storao:e  sj^ace  for  standini^  passen.c^ers  so  as 
to  rapidly  absorb  the  inflow  of  pas.senp:ers  at  times  of  maximum 
travel;  and  I  1)elieve  the  arranj^ement  above  recomiuended,  seating 
44  people  comfortably,  will  best  meet  the  con<litions  prevailing:  on 
the  Gearv  Street  line  and  its  probable  connections. 


Specilicalions  for  b(>lh  steel  and  semi-steel  cars  for  this  line, 
l)reviously  pre])are(l  by  eni^ineers  for  the  City,  have  been  submitted 
to  me  and  they  call  for  thorous^hly  tirst-class  construction  and  show 
evidence  of  careful  desij^^^n  ;  and  had  cars  built  to  these  specifications 
l)een  purchased  by  the  City,  the  line  would  have  been  ecjuipped 
with  hioh-f^rade  rollini^  st<3ck  of  the  closed  type.  But  in  review- 
ing these  plans  and  specifications  it  has  occurred  to  me  that 
certain  modifications,  if  adopted,  would  make  a  car  some- 
what li5.,dUer  and  1  believe  better  adapted  for  service  on  the  (leary 
Street  line,  the  principal  chan<^es  being  as  follows : 

1.  The  abandonment  of  the  fully  clo.sed  car  body  feature, 
and  the  substitution  therefor  of  a  partly  closed  and  partly  open  body 
type  with  the  closed  part  in  the  middle  and  the  open  ])arts  at  the 
ends. 

2.  The  substitution  of  raise  sash  in  the  closed  portion 
of  the  body  for  drop  sash,  thus  |)ermilting  a  liohter  and  nar- 
rower construction,  the  recommended  car  being  8'  6"  wide  instead 
of  8' 9". 

3.  The  elimination  of  glass  windows  in  the  (^j^en  parts 
of  the  car,  leaving  only  flexible  drop  curtains,  thus  saving  some 
weight  and  the  cost  of  furnishing  and  maintaining  windows  and 
sash. 

4.  The  substitution  of  the  arched  roof  for  the  monitor 
deck  type,  the  former  making  e(|ually  as  good  as  w'ell  as  a  lighter 
and  stronger  car  for  less  first  cost  and  also  one  which  will  permit ade- 
cjuate  ventilation  in  the  closed  part  of  the  car  by  means  of  autoiuatic 
ventilators  of  a  suitable  type. 

3.  The  introduction  of  automatic  exhaust  ventilators  in 
the  closed  jiortion  of  the  car  with  provision  for  ingress  of  fresh 
air  when  the  doors  of  the  closed  com])artment  are  closed. 

6.  The  rcarrangcmcMit  of  the  oi)erating  ap})aratus  on  tlu- 
jdatforms,  such  as  controllers,  air-brakes,  hand-brakes,  etc..  changes 
in  the  design  of  the  guide  rails,  and  the  ado])tion  of  the  small 
master  controller  of  the  remote  control  system,  all  of  which  will 
greatly  increase  the  reservoir  cai)acity  of  the  i)latf()rm  and  ])ermit 
rai)i(l  loading  by  allowing  a  greater  number  of  ])assengers  prompt 
access  from  the  street  to  the  platform.  This  will  enable  the  car 
to  start  and  get  away  (|uickly  instead  of  waiting  for  these  passen- 
gers to  file  singly  by  the  condtictor  before  the  starting  signal  mav  be 
given. 

7.  The  retaining  of  the  advantages  of  the  cross-seat 
feature  and  adding  four  additional  cross  seats  (all  of  which  are 
located  in  the  ()])en  section  of  the  car)  thus  permitting  ])art  of  the 
outside  riders  to  ride   face   forward   instead  of   facing  inward,  al- 


ii 


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180 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


FIGURE  45— DETAIL  VIEWS  OF  THE  MUNICIPAL  CAR. 
These  photos  illustrate  some  important  features  of  the  new  cars  operating 
on  Geary  Street— (a)  unobstructed  entrance  way  to  facilitate  rapid  loadmg, 
(b)  open  bulkhead  at  the  ends  to  eliminate  cramped  entrances,  (c)  maximum 
comfort  by  the  use  of  many  cross  seats,  (d)  maximum  standing  space  oppo- 
site entrance,  (e)  protection  of  motorman  by  removable  guide  railing,  (f) 
easy  forward  exit  next  to  car  body. 

though,  in  order  to  get  sufficient  reservoir  space  in  each  end  of  the 
car  to  absorb  passengers  rapidly  when  entering,  it  is  necessary  to 
have  at  least  one  longitudinal  seat  in  each  open  section. 

8.  The  elimination  of  the  doors  at  each  end  of  the  car  and  the 
adoption  of  an  open  bulkhead  type  similar  to  cars  now  in  operation 
in  Oakland  and  Los  Angeles,  which  arrangement  allows  greater 
storage  capacity  at  times  of  overload,  and  permits  easier  ingress 
and  egress  of  passengers. 

9.  The  substitution  of  a  jointed  or  hinged  guard-rail, 
manipulated  by  the  conductor,  or  a  railing  cut  off  some  distance 
back  from  the  step  stanchion  which  will  permit  the  entire  width  of 
entrance  of  the  rear  platform  to  be  used  for  loading  at  times  of 


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181 


excessive  congestion.  Such  a  device  is  now  in  successful  opera- 
tion by  the  Oakland  Traction  Company. 

10.  The  location  of  the  forward  exit  gate  next  to  the 
body  corner  post  instead  of  next  to  the  vestibule  bulkhead  in  order 
to  avoid  the  necessity  of  a  passenger  forcing  his  way  through  a 
crowded  platform  to  reach  the  exit  gate. 

In  the  Appendix  is  a  brief  digest  of  the  revised  specifications  pre- 
senting the  essential  points  in  the  recommended  design. 

U.    UNITED  RAILROADS  1912  MOTOR  CAR 

From  the  standpoint  of  the  public,  the  various  items  in  the 
make-up  of  a  complete  car  to  be  subjected  to  analysis  are  as  fol- 
lows : 

(1)  Seating  arrangement. 

(2)  Facilities  for  quick  loading  and  unloading. 

(3)  Storage  space — platform  and  car  floor. 

(4)  Car  proportions,  with  reference  to  street  clearance. 

(5)  Height  and  type  of  steps. 

(6)  Ventilation  and  lighting. 

(7)  Designating  signs. 

The  proportions  of  the  1912  car  are  practically  the  same  as 
the  later  equipment  now  in  service  on  Sutter  Street,  and,  except- 
ing width,  also  approximate  the  proportions  of  the  Geary  Street 
cars;  that  is,  as  regards  truck  centers,  wheel  base,  length  of  body 
and  platform,  and  height.  The  arch  roof  used  (sometimes  called 
the  turtle-back  roof),  however,  is  new  to  the  United  Railroads 
practice,  except  in  the  case  of  a  few  remodeled  cars  which  have 
been  built  in  the  Company's  shops  and  have  been  placed  in 
service  within  the  year  (1912).  And  except  in  the  case  of  these 
few  cars,  and  the  Municipal  Railway  equipment,  the  1912  design 
embodies  for  the  first  time  in  a  San  Francisco  prepayment  car 
the  "California"  type  arrangement  of  car  body  with  closed  and 
open  sections. 

Considering  these  two  designs  together  from  the  standpoint  of 
the  most  suitable  car  for  the  City  of  San  Francisco,  I  believe 
the  Geary  Street  is  superior,  although  even  it  may  require  some 
minor  modifications  as  a  result  of  experience  with  the  initial  or- 
der. The  two  differ  materially  in  the  matter  of  seating  arrange- 
ment and  width  of  car. 

Inasmuch  as  this  new  equipment  may  possibly  operate  on  the 
Sutter  Street  lines  in  competition  with  Geary  Street,  the  follow- 
ing comparison  will  be  of  interest.  Only  such  features  as  differ 
materially  from  the  Geary  Street  cars  or  require  further  modifi- 
cation are  compared  herein  for  discussion. 


INTENTIONAL  SECOND  EXPOSURE 


180 


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NEW  ROLLING  STOCK 


161 


FIGUUK  45     DETAIL   VIEWS  OF  THE   ML'NKTPAL  CAR. 

T1k-c  photos  ilhistr.itc  x.hk-  inii)ortam  tValures  of  ilio  new  .-ars  opcratin.Lj 
(.n  tuary  Street— (a)  unol)>tructe<l  emraiiee  way  to  facilitate  rapid  loading, 
(1))  open  bulkhead  at  the  eiK^  t«»  eliminate  cramped  entrance>,  (c)  maximum 
cnmfort  l)v  the  u>e  of  main  cro>s  scats,  (d)  maximum  >tandmg  space  oppo- 
site entrance,  le)  jirotection  of  motorman  hy  removable  guide  railing,  (f) 
tasy  forward  exit  next  to  car  body. 

ihuti^li,  in  order  to  ^ct  sufticicnl  reservoir  space  in  each  end  of  the 
ear  to  al)>orl)  i)as>enoers  ra])idly  wlien  enterini^,  it  is  necessary  t«» 
have  at  least  one  lonoitudinal  seat  in  each  oi)en  section. 

8.  The  eliniinalion  of  the  doors  at  each  end  of  the  car  and  the 
adoption  ui  an  «»pen  Imlkhead  lyi)e  similar  to  cars  n<j\v  in  operation 
in  Oakland  and  L<»s  An-eles,  which  arrangen^ent  allows  orcater 
storai;e  capacity  al  times  of  overload,  and  permits  easier  ini^ress 
and  ei^ress  of  passcnoeis. 

9.  The  suhstitntion  of  a  jointed  or  hinoed  guard-rail, 
manipulated  by  the  conductor,  or  a  railing  cut  off  some  distance 
back  from  the  step  stanchion  which  will  permit  the  entire  width  of 
entrance  of  tlte   rear  platform   to  be  used   for  loading  at   times   of 


excessive  congestion.     Such  a  device  is  now  in  successful  opera- 
tion by  the  Oakland  Traction  Company. 

10.  The  location  of  the  forward  exit  gate  next  to  the 
body  corner  post  instead  of  next  to  the  vestibule  bulkhead  in  order 
to  avoid  the  necessity  of  a  passenger  foixing  his  way  through  a 
crowded  platform  to  reach  the  exit  gate. 

In  the  Appendix  is  a  brief  digest  of  the  revised  speci^lcalioll^  pre 
senting  the  essential  points  in  the  reconimended  design. 

II.     UNITED  RAILROADS  1912  MOTOR  CAR 

From  tlie  stand]joint  of  the  public,  the  various  items  in  the 
niake-up  of  a  complete  car  to  be  subjected  to  analysis  are  as  fol 
lows : 

(1)  Seating  arrangement. 

(2)  Facilities  for  (juick  loading  and  uiduading. 

(3)  Storage  space — platftjrm  and  car  floor. 

(4)  Car  proportions,  with  reference  to  street  clearance. 

(5)  Height  and  type  of  steps. 

(6)  Ventilation  and  lighting. 

(7)  Designating  signs. 

The  proportions  of  the  l^>i_!  car  are  practically  the  >aiiie  a- 
the  later  equipment  now  in  service  on  Sutter  Street,  and,  except- 
ing width,  also  approximate  the  proportions  of  the  (ieary  Street 
cars ;  that  is,  as  regards  truck  centers,  wheel  base,  length  oi  body 
and  platform,  and  height.  The  arch  roof  used  (sometimes  called 
the  turtle-back  roof),  however,  is  new  to  the  I'nited  Railroads 
practice,  except  in  the  case  of  a  few  remodeled  cars  which  have 
been  built  in  the  Company's  shops  and  have  been  placed  in 
;-ervice  within  the  year  (1912).  .\nd  except  in  the  case  oi  these 
few  cars,  and  the  Municipal  Railway  equipment,  the  1''12  design 
embodies  for  the  tirst  time  in  a  San  Francisco  prepayment  car 
the  "California"  type  arrangement  of  car  body  with  closed  and 
open  sections. 

Considering  these  two  designs  together  from  the  standpoint  oi 
the  most  suitable  car  for  the  City  of  San  Francisco,  I  believe 
the  Geary  Street  is  superior,  although  even  it  may  require  some 
minor  modifications  as  a  result  of  experience  with  the  initial  or- 
der. The  two  differ  materially  in  the  matter  of  seating  arrange 
ment  and  width  of  car. 

Inasmuch  as  this  new^  equipment  may  possibly  operate  on  the 
Sutter  Street  lines  in  competition  with  Geary  Street,  the  follow- 
ing comparison  will  be  of  interest.  Only  such  features  as  differ 
materially  from  the  Geary  Street  cars  or  require  further  modifi- 
cation are  compared  herein  for  discussion. 


1 82  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

ESSENTIAL  DIFFERENCES  IN   DESIGN 


1.  Proportion  of  cross 

seats       to       total 
fixed  seats 

2.  Longitudinal  seats 


3.  Average   spacing   of 

cross  seats 

4.  Principal       standing 

space 

5.  Seat  proportions 

6.  Width  of  aisle 

7.  Width    required    for 

seat  over-all 

8.  Width   of   car   body 

over-all 

9.  Platform 

10.  Minimum  rear  en- 
trance width  on 
platform 


11.  Bulkhead   width 

12.  Position       of       exit 

door 

13.  Minimum  exit  width 

14.  Guide   rail 

15.  Type  of  step 

16.  Platform  fixtures 

17.  Window   sash 

18.  Storm       protection, 

open  section 

19.  Ventilators 

20.  Sanders 


Geary  Street 
73%   (exclusive  of  plat- 
form  seat) 

Half  of  end  compart- 
ments on  entrance 
side 

30y2  inches  to  31  7-32 
inches 

End  compartments,  op- 
posite entrance  way 

17  inches  by  34  inches 

27  inches  at  hip  line 

37    inches 


8  feet  6  inches 

Tapered       to       provide 

clearance  at  curves 
40  inches 


Open  between  corner 
posts  69  inches 

Next  to  car-body  bulk- 
head 

29  inches 

Motorman  protected  by 
movable  guide  rail 

Foldinsf  type,  raised  on 
blind  side  of  car 

Master  type  controller 
to  reduce  spac^  occu- 
pied 

Raise  sash  in  closed 
sections 

Drop  curtains 

Automatic  eductors  in 
roof,  and  floor  in- 
takes 

Positive  air  blast  sand- 
ers  delivering  close  to 
wheel 


United  Railroads 
45%  (exclusive  of  plat- 
form seat) 

Entire  closed  compart- 
ment 

29  inches 

Middle  or  closed  com- 
partment 

16  inches  by  32  inches 

40  inches  at  shoulder 
line 

35  inches  or  more,  de- 
pending upon  the 
type  used. 

9  feet  2  inches 

Straight  sides 

32  inches,  due  to  con- 
traction of  hand-rail- 
ing, location  of  and 
difference  in  types  of 
controller 

False  partitions,  open- 
ing 53  inches 

Next  to  car  bumper, 
with  seat  intervening 

27  inches 

Guide  rail  raised.  No 
protection  for  motor- 
man 

Fixed  steps 

Type  K  control  oppo- 
site narrowest  en- 
tranceway 

Sash  fixed 

None 

Intake  and  exhaust  fun- 
nels 

Gravity  sanders 


The  improvements  which  I  am  able  to  recommend  depend  to  a 
large  degree  upon  the  service  intended,  that  is,  whether  this  new 
equipment  is  intended  for  general  use  in  all  parts  of  the  city,  i.  e.,  in- 
terchangeable as  regards  routes,  or  for  operation  on  certain  lines 
only.    In  either  ease  the  following  improvements  should  be  included : 


P 


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183 


RECOMMENDATIONS 

(1)  Taper  platforms,  to  provide  for  future  clearance  opera- 

tion. 

(2)  Front  exit  gate  next  to  the  bulkhead. 

(3)  Straightened    guide    rail    to    provide    greater    entrance 

width,  or 
(3a)   Conductor's  stand  in  center  of  bulkhead  opening  and 
elimination  of  present  form  of  guide  railing. 

(4)  Motorman  protected  by  movable  guide  rail. 

(5)  Geary  Street  or  equivalent  seating  arrangement. 

(6)  Cross-seat  cushions  17"x34",  spacing  30  inches  or  more. 

All  cushions  spring-backed. 

(7)  Raise  sash  in  middle  or  closed  section. 

(8)  Bulkhead  open  between  corner  posts. 

(9)  Folding  steps  instead  of  fixed  steps. 

(10)  Storm  curtains  or  equivalent  protection. 

(11)  Ventilating  intakes  in  floor  or  sides  of  the  car. 

(12)  Positive  air  blast  sanders. 

(13)  More  liberal  spacing  per  passenger  for  longitudinal  seats 

where  vertical  stanchions  are  used  in  place  of  straps. 

For  a  Future  Standard  Car: 

(14)  Over-all  width  8'  6",  track  centers  not  less  than  10'  2" 

(sidewalk  width  11'  to  12'  on  68'  9"  street),  giving  two- 
line  vehicle  traffic  on  all  streets. 

l^ote — It  is  understood  that  the  United  Railroads  now  has 
in  contemplation  the  following  modifications  of  the  original 
plans : 

1.  Moving  front  exit  gate  next  to  bulkhead. 

2.  Cleveland  arrangement  of  fare  box  and  guide  rail.    (See 

p.  205.) 

3.  Cross-seat  cushions  17"  x  34". 

4.  Bulkhead  posts  to  be   flared  back  to  increase   shoulder 

width  at  entrance. 

5.  Sliding  or  folding  step. 

6.  Storm  curtains,  if  satisfactory  on  Geary  Street  cars. 

7.  Ventilating  intakes  if  found  necessary. 

8.  Removal  of  fare  box  from  entrance  way. 

9.  Vertical  stanchions  in  closed  compartment  set  out  to  knee 

line. 
10.  Platforms  to  be  tapered,  when  improved  type  of  fender  is 
developed. 


i 


i 


1i' 


i 


1  84  SAN  FRANCISCO  TRANSPORTATION  FACIUTIES 


GENERAL  DISCUSSION 

Seating  Arrangement.  In  the  Geary  Street  cars  I  have 
preferred  to  locate  the  principal  storage  space  in  the  open  sec- 
tion, while  the  reverse  is  true  in  the  United  Railroads  design. 
My  reason  for  so  doing  is  in  recognition  of  the  fact,  determined 
by  observation,  that  the  average  passenger  rides  less  than  two 
miles  along  a  given  route  before  alighting.  This  means  that  the 
short-haul  passenger  greatly  predominates,  and  consequently 
that  extra  space  must  be  provided  for  persons  disinclined  to 
move  forward  because  of  a  short  trip  ahead. 

On  the  other  hand,  the  United  Railroads  provides  this  extra 
storage  space  by  using  longitudinal  seats  in  the  closed  section  to 
encourage  people  to  move  forward  in  order  to  clear  the  rear  part 
of  the  car  for  newcomers,  and  also  for  the  reason  that  during 
stormy  weather,  longitudinal  seats  will  accommodate  the  maxi- 
mum number  of  persons  desiring  to  be  protected.*  However,  the 
United  Railroads  design  provides  no  sash  in  the  open  sections, 
nor  storm-curtains,  as  does  the  Geary  Street  car.  It  is  possible 
that  the  storm  curtains  for  the  latter  may  not  prove  a  perfect 
appliance  for  this  purpose,  but  in  the  absence  of  something  bet- 
ter I  certainly  should  not  consider  it  wise  to  spoil  such  a  good 
seating  arrangement  as  in  the  Geary  Street  cars  on  account  of  a 
short  period  of  inclement  weather. 

One  method  of  encouraging  passengers  to  move  forward  is  to 
limit  smoking,  by  ordinance,  to  the  front  open  section,  thereby 
inviting  forward  a  fair  proportion  of  the  passengers  immediately 
after  entrance.  The  serious  objection  to  the  United  Railroads 
layout  is  that  the  passengers  entering  the  car  body  are  imme- 
diately forced  into  the  center  of  the  aisle,  counter-current  to 
those  passing  out  through  the  rear  exit.  On  the  other  hand,  the 
side  seat  plan  as  used  in  the  Geary  Street  car  provides  not  only 
a  relatively  wide  passageway,  but  also  an  offset  aisle  which  will 
tend  to  separate  lines  of  entering  from  leaving  passengers. 

Experience  in  other  cities  tends  to  show  that  longitudinal 
seats  do  not  attract  street  car  patrons — cross  seats,  quite  the 
reverse.  Consequently,  the  advisability  of  thus  using  all  longi- 
tudinal seats  in  the  center  or  closed  section  is  very  doubtful, 
especially  with  so  wide  a  car  as  proposed.  The  fact  that  riding 
in  San  Francisco  is  extremely  short-haul  justifies  the  use  of  a 
certain   percentage   of  longitudinal   seats;   but   they   should   be 


♦As  a  matter  of  fact,  the  contraction  of  the  aisle  at  the  ends  instead  of  the  center 
tends  to  defeat  the  very  purpose  in  view  by  checking  free  forward  movement  right  at  the 
entrance. 


NEW  ROLLING  STOCK 


163 


placed  where  most  needed,  and  in  this  respect  the  Geary  Street 
car  design  is,  in  my  judgment,  the  more  desirable  for  the  pres- 
ent car.  The  best  that  can  be  said  of  the  United  Railroads  seat- 
ing arrangement  is  that  it  is  a  considerable  improvement  over 
some  of  the  present  equipment,  with  the  exception  of  the  so- 
called  "Chicago"  car,  which  may  be  identified  by  class  numbers 
1500  to  1549,  and  the  half  cross,  half  longitudinal  seat  type,  rep- 
resented by  class  numbers  1550  to  1749.  In  the  latter,  the  longi- 
tudinal seats  run  as  far  as  the  center  of  the  car  on  the  one  side, 
then  for  the  remainder  of  its  length  on  the  other  side,  thus 
approximating  the  Geary  Street  arrangement  except  for  the  cen- 
tral closed  section. 

Width  of  Car.      As  a  result  of  experience  and  observations 
in  Chicago  during  the  complete  rehabilitation  of  the  transit  sys- 
tem, it  would  seem  that  the  adherence  to  a  car  as  wide  as  9'  2"* 
in  San  Francisco  is  a  mistake,  provided  that  a  future  standard  is 
under  discussion.   If  all  of  the  streets  of  the  city  were  of  the  gen- 
erous proportions  of  those  of  the  business  district  south  of  Mar- 
ket Street,  the  necessity  for  limiting  the  car  width  would  not 
arise.    Unfortunately,  however,  the  streets  of  the  50-Vara  dis- 
trict and  Western  Addition  are,  as  a  general  rule,  only  about 
68'  9"  in  width.     And,  still  more  unfortunately,  the  track  centers 
have  been  standardized  at  a  distance  of  U^  0>4"  in  order  to 
secure  an  ample  width  of  ''devil  strip" — 22^  inches  between  cars. 
This   width   undoubtedly   represents   good   practice,   although   a 
width  of  20  inches  is  sufficient  where  street  widths  are  limited. 
Unfortunately,  again,  the  sidewalks  in  the  50-Vara  district  and 
Western  Addition  are  fixed  by  ordinance  at  15  feet  in  width, 
which  is  too  great  to  permit  two-line  vehicle  traffic  on  each  side  of 
the  street.     In  order  to  secure  reasonably  rapid  transit,  two-line 
vehicle  traffic  is  absolutely  essential,  to  enable  slow-moving  vehi- 
cles to  keep  next  to  the  curb,  rapid  vehicles  passing  between 
them  and  the  car.  If  the  usual  proportion  in  sidewalk  width  were 
in  vogue,  viz. :  one-sixth  of  the  width  between  building  lines,  the 
sidewalk  would  be  approximately  11>^  feet  wide.   Then  with  the 
narrower   car — 8>^    feet    in    width— and   a    20-inch    ''devil    strip," 
there  would  be  ample  room  for  two  lines  of  vehicles  on  either 
side.    Under  present  conditions  two-line  traffic  is  impossible,  as 
a  15-foot  sidewalk  only  permits  a  single  line  of  vehicles.   There- 
fore, at  the  present   time,   the   wider  car   will   oflFer  practically 
no  greater  obstruction  to  street  traffic  than  the  narrower  car,  in 
the  Western  Addition  district.   (See  Figure  46.) 


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FIGURE  46— COMPARATIVE  DIAGRAM  OF  STREET  SECTIONS. 

Showing  the  possibility  of  more  efficient  traffic  operation  through  redis- 
tribution of  the  available  street  width  by  reducing  sidewalks  and  using  the 
Chicago  standard  of  car  width  (8'-6")  and  track  centers  (l(y-2")  thus  sav- 
ing 18  inches  from  the  roadway.  Freeway  between  cars  and  vehicles  stand- 
ing along  the  curb  is  essential  for  rapid  surface  transportation. 

(1)  Standard  street,  50- Vara  district.  Sidewalk  reduced  to  12  feet.  (2) 
Standard  street  100- Vara  district.  Two-Hne  vehicle  traffic  possible  only  with 
narrow  car.  (3)  Business  street,  50-Vara  district  with  single-track  car  line. 
Two-Hne  mixed  traffic  difficult  without  reduced  sidewalk.  (4)  Business  street, 
lOO-Vara  district.  Sidewalks  15  feet  wide  permit  two-line  mixed  traffic  with 
either  car.  (5)  Trucking  street,  100- Vara  district.  Sidewalk  decreased  to 
one-sixth  of  the  street  width. 


NEW  ROLLING  STOCK 


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It  is  entirely  possible,t  however,  that  future  steps  may  be 
taken  to  reduce  the  width  of  sidewalks  in  order  to  clear  some  of 
these  streets;  And,  in  addition,  considering  the  new  streets  which 
will  be  improved  and  electrified  from  time  to  time,  it  is  not  too 
carlv  to  establish  a  standard  which  will  make  these  things  possible. 
Narrowing  of  the  track  centers  in  order  to  require  less  of  the  road- 
way width  than  at  the  present  time  must  be  eflfected  to  carry 
out  this  plan.  This  can  only  be  done  gradually  on  extension  and 
rehabilitation  work,  but  ultimately  the  entire  city  will  be  brought 
to  one  standard. 

For  an  8'  6"  car  10'  2"  track  centers  may  be  used,  as  is  the 
present  standard  within  the  city  of  Chicago.  This  combination 
makes  available  for  vehicles  r8  inches  more  of  roaduHiy  than 
under  present  conditions.  The  desire  of  the  United  Railroads 
to  furnish  the  maximum  width  of  aisle  by  using  the  wider  car 
is  indeed  laudable,  but  when  it  is  considered  that  the  wider  car 
is  obtained  at  the  expense  of  narrowing  the  roadway,  I  cannot 
recommend  it,  especially  when  a  width  of  aisle,  27  inches  between 
seat  backs,  has  proven  sufficient  in  so  congested  a  city  as  Chi- 
cago. . 

Seats.  The  seat  proportions  proposed  do  not  appear  to  be 
liberal  enough,  especially  for  so  wide  a  car.  For  comfort,  cushions 
should  be  17"  x  34",  and  all  seats  in  the  car  spring-backed.  This 
requires  a  longitudinal  spacing  of  at  least  30  inches,  preferably 
more.  In  the  1912  car,  the  dimension  of  the  closed  section  has 
resulted  in  cramping  the  spacing  of  cross  seats  in  the  open  sec- 
tions to  29  inches.  This  should  be  increased.  The  size  of  the 
closed  section  is  determined  by  the  number  of  seats  and  the 
spacing  allowed  per  person.  Although  the  design  calls  for  17^ 
inches  per  passenger,  which  is  fair,  the  effective  spacing  has  been 
reduced  by  the  provision  of  vertical  hand  rods  or  stanchions  at 
alternate  seats,  extending  from  the  floor  to  the  roof  at  the  seat 
line.  These  hand  rods  reduce  the  actual  spacing  between 
stanchions  to  34  inches,  which  is  not  sufficient  to  allow  two  per- 
sons to  rise  together  comfortably.  Moreover,  these  stanchions 
in  the  present  position  will  probably  prevent  uniform  seating,  in- 
asmuch as  there  are  no  fixed  divisions  between  the  seats.  They 
require  six  inches  additional  length  in  the  closed  compartment, 
which  if  applied  to  the  open  compartments,  would  increase  the 
seat  spacing  to  thirty  inches — some  improvement  over  the  pres- 
ent design. 

However,  where  longitudinal  seats  are  used,  these  stanchions 
are  desirable  in  place  of  straps,  for  the  assistance  of  standing  pas- 

tNow  being  done  on  some  streets  in  the  Western  Addition. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


senders,  and  if  covered  with  white  enamel  as  in  modern  rolling 
stock,  they  are  sanitary  and  convenient.  But  in  the  absence  of  a 
more  liberal  spacing,  they  should  be  set  out  at  least  to  the  knee 
line,  in  which  position  they  would  interfere  less  with  seated  pas- 
sengers, and  would  be  fully  as  convenient  for  standing  passengers 
as  in  the  present  plan.  Without  very  liberal  seat  space  per  pas- 
senger, partitions  must  be  used  between  seats  if  stanchions  are 
to  be  set  up  against  the  seat  line,  and  either  condition  requires  so 
much  extra  length  of  car  body  that  the  number  of  cross-seats 
in  the  open  sections  is  reduced  from  six  to  four.  Therefore,  with 
this  car  body  the  standard  cross-seat  arrangement  within  the 
closed  section  is  preferable,  or  else  the  dimensions  should  be  so 
modified  as  to  obtain  better  results  in  both  compartments. 

Length  of  Car.  This  is  limited  by  the  permissible  overhang 
of  platform  beyond  the  center  line  of  trucks,  and  that  of  the 
projecting  fenders  used.  On  general  principles,  it  is  desired  to 
increase  the  length  of  car  body  as  much  as  possible,  in  order 
that  the  proportional  cost  of  platform  wages  may  be  reduced  and 
also  the  relative  maintenance  of  parts.  But,  in  any  case,  the  plat- 
form overhang  is  the  serious  and  determining  factor,  especially 
where  narrow  streets  are  encountered,  owing  to  the  resulting 
interference  with  adjacent  car  and  vehicle  traffic  on  curves.  For 
prepayment  cars,  long  platforms  are  necessary,  and  in  order  to 
reduce  the  overhang  of  the  ends,  trucks  must  be  located  as  far 
apart  as  possible,  and  still  keep  the  center  overhang  within  rea- 
sonable limits. 

In  the  case  of  the  1912  type  of  car,  the  proportions  have  been 
worked  out  to  secure  probably  as  good  a  design  as  could  be  pro- 
duced under  the  conditions  existing  in  this  city.  The  distance 
between  truck  centers  and  car  platforms  is  practically  the  same 
as  in  the  Geary  Street  car.  In  either  design,  the  end  overhang 
cannot  be  reduced  because  of  interference  of  trucks  with  the 
projecting  underhanging  platform  side  sills.  In  reasonably  flat 
cities,  two-motor,  maximum  traction  trucks,  with  pony  wheels 
extending  out  under  the  platform  can  be  used,  thus  decreasing 
to  some  extent  the  platform  overhang.  But  in  San  Francisco,  two- 
motor  equipments  are  impossible  on  account  of  the  greater  trac- 
tive eflfort  required  on  heavy  grades. 

The  only  remaining  method  of  reducing  car  overhang  is  by 
tapering  the  platform  so  that  the  corners  of  the  bumpers  describe 
an  arc  of  somewhat  shorter  radius.  In  this  respect,  I  cannot  rec- 
ommend the  1912  car,  because  of  the  fact  that  the  platform  has 
been  designed  of  the  same  width  as  the  car  body  on  the  assump- 
tion that  with  the  use  of  a  fender,  the  platform  actually  presented 


i  I 


U  R  R     1912    CAR  WITH  CCLIPSC  FENDER 

»>«tSENT      »lOt    WAl.*<        WIDTH 


FIGURE  47— STUDIES  OF  CAR  CLEARANCES  ON  CURVES. 

In  any  system  of  routing  where  curves  are  encountered  a  fast  schedule 
requires  that  cars  may  pass  on  all  curves  without  interference  or  delay.  But 
owing  to  the  present  fender,  clearance  operation  is  impossible  with  such 
curves  as  may  properly  be  used  in  the  existing  narrow  roadways,  either  with 
present  or  new  equipment.  In  view  of  the  possibility  of  a  more  satisfactory 
fender  being  developed,  tapered  platforms  have  been  uniformly  recommended. 
These  diagrams  represent  by  shaded  lines  the  area  swept  over  by  various 
cars  in  rounding  standard  curves.  With  11-foot  sidewalks,  overhang  at  in- 
side curb  is  avoided,  but  tapered  platforms  are  necessary  in  any  case  to 
provide  clearance  operation. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


less  overhangs  around  curves  than  the  corner  of  the  fender,  which 
now  prevents  clearance  operation.  But  even  assuming  that  this 
is  true,  it  should  not  be  assumed  that  the  present  type  of  fender 
is  to  be  permanent. 

Clearance  operation  is  very  essential  in  any  system  of  rapid 
transit,  surface  or  otherwise,  and  it  is  a  fact  that  through  the 
adoption  of  the  "Eclipse"  fender,  specified  by  the  Board  of  Super- 
visors, the  clearance  operation  of  cars  around  curves  in  San 
Francisco  has  been  entirely  nullified.  Nevertheless,  the  develop- 
ment of  a  new  car  for  either  present  or  future  should  not  embody 
this  purely  temporal  condition  and  render  clearance  operation 
impracticable  or  dangerous.  Consequently,  tapered  platforms 
should  be  embodied  in  the  design.  (Figure  47).  The  only  alter- 
native is  for  the  City  to  permit  the  spreading  of  tracks  at  curves 
sufficient  to  clear  present  fenders,  which  would  result  in  an  over- 
hang of  15  inches  over  the  standard  curb  of  the  Western  Addition 
district.f 

Platform  Arrangement.  Generally  speaking,  there  is  a  cer- 
tain relation  between  the  area  occupied  by  passengers  in  the  car 
body  and  that  of  the  platform ;  i.  e.,  the  larger  the  car,  the  more 
platform  space  is  required.  Where  the  prepayment  principle  is 
used,  it  is  particularly  necessary  that  ample  storage  space  be  avail- 
able on  the  platform  in  order  to  avoid  delaying  the  schedule  due 
to  slow  loading,  as  would  be  the  case  with  the  short  platforms. 
Moreover,  every  restriction  placed  in  the  way  of  free  entrance  of 
passengers  must  be  removed.  In  the  1912  car,  the  principal  dif- 
ficulty is  this  contraction  of  the  entrance  space — first,  by  cramping 
the  railing  into  the  entrance  passageway;  and,  second,  by  locating 
the  controller  directly  opposite  the  contraction.  There  are  three 
ways  of  improving  this  defect : 

First:  By  straightening  out  the  guide  railing  so  as  not  to 
cramp  the  entrance  way; 

Second:     By  use  of  the  master  control  system;  and 

Third:  By  placing  the  fare  box  opposite  the  center  of  the 
bulkhead  opening  with  the  conductor  standing  between.* 

With  the  remote  control  system,  only  a  very  small  master  con- 
troller box  is  necessary  on  the  platform,  while  the  actual  contact 
devices,  connected  thereto  by  an  electric  circuit,  are  all  located 
underneath  the  car. 

tWith  standard  spiral  easements  at  present  used  throughout  the  United  Railroads 
system,  the  1912  car  theoretically  clears  on  curves  with  a  margin  of  four  to  six  inches 
on  the  wider  streets,  and  less  than  one  inch  on  the  narrower,  exclusive  of  fender.  But 
even  this  clearance  is  out  of  the  question  on  account  of  the  possible  list  of  the  car  on 
curves  from  various  causes,  such  as  eccentric  loading,  depressed  rail,  worn  side  bearings, 
failure  of  springs,  etc.  ,  j  •     t>i 

•A  similar  plan  is  at  present  in  operation  in  Cleveland  and  indicated  in  Plate  12, 


NEW  ROLLING  STOCK 


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In  the  third  method  the  present  form  of  guide  railing  is  entirely 
dispensed  with,  the  guard  rail  for  the  fare  box  serving  the  purpose 
of  dividing  the  bulkhead  opening  into  entrance  and  exit  passages. 
In  this  manner,  the  entire  platform  is  open  to  passengers  and 
the  congestion  at  the  entrance  entirely  eliminated. 

For  the  new  rolling  stock,  one  or  more  of  these  methods  should 
be  adopted ;  and  in  any  case,  the  front  exit  gate  should  be  removed 
from  its  present  location  next  to  the  bumper  to  a  position  next 
to' the  bulkhead.  This  is  desirable  so  that  passengers  may  alight 
quickly  without  having  to  force  their  way  through  standing  groups 
which   at   present   congest   the   space   between    the   bulkhead   and 

front  exit  gate. 

By  using  the  master  control  system  as  above  proposed,  and  with 
the  handrailing  straightened,  fully  50  per  cent  more  entrance  width 

will  be  available. 

An  advantage  of  the  proposed  location  of  exit  gate  next  to  the 
bulkhead  is  that  two  or  three  feet  of  length  may  be  saved  from 
each  two-car  safety  station*  along  Market  Street.  At  Kearny 
Street  station  particularly,  this  is  of  importance,  owing  to  the  dif- 
ficulty in  securing  the  proper  length  of  station  without  interfering 
with  street  traffic. 

In  carrying  out  these  improvements,  the  bulkhead  should  be 
left  open  with  the  maximum  width  between  corner  posts,  in  order 
to  secure  ample  entrance  and  exit  space.  This  is  a  definite  advan- 
tage of  the  so-called  "California"  type  of  car,  and  the  entrance 
and  exit  should  not  be  contracted  by  false  bulkheads  such  as  wire 
screens  or  vertical  railing. 

Loading.  San  Francisco  cars,  unlike  those  of  other  cities,  are 
called  upon  to  handle  two  entirely  different  classes  of  service: 
(1)  normal  street  traffic;  and  (2)  terminal  traffic  at  the  Ferry,  and 
it  is  the  difficulty  in  handling  large  groups  of  passengers  at  ter- 
minals that  has  occasioned  most  of  the  recent  criticism.  In  my 
judgment,  the  prepayment  is  by  far  the  best  system  of  operation 
that  has  been  devised  thus  far,  but  it  must  be  perfected  for  these 
special  conditions  of  service. 

More  rapid  loading  at  points  of  congestion  can  be  secured  by 
the  use  of  a  radius  rod  in  the  guide  railing,  such  as  used  on  the 
Oakland  cars.  By  means  of  this  radius  rod,  the  entire  widtb  of 
step  can  be  made  available  so  as  to  increase  the  storage  space  at  en- 
trance, and  thus  load  large  groups  of  passengers  more  promptly  than 
if  half  the  step  were  used. 

As  an  alternative,  the  radius  bar  may  be  omitted  and  the  hand 
railing  cut  off  about  24  inches  back  from  the  step,  in  a  measure 

•Recommended   in    Chapter   6.    Fig.    32. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


•ION  J.  ARNOLD 


lOO 


FIGURE   48a— EFFECT    OF    ENTRANCE   WIDTH    ON    LOADING    SPEED. 

Based  upon  observations  of  the  relative  time  required  to  load  a  given 
group  of  passengers  through  wide  and  narrow  entrances.  These  results  con- 
form in  character  to  similar  observations  made  upon  different  sized  cars  in 
Chicago,  where,  however,  the  loading  is  faster,  due  to  improved  platform  ar- 
rangements. The  data  show  that  the  largest  San  Francisco  platforms  now  in 
use  require  27  per  cent  more  time  in  seconds  per  passenger  than  the  Oakland 
cars  using  the  radius  rod. 


NEW  ROLLING  STOCK 


193 


accomplishing  the  same  purpose.     This  plan  is  now  in  use  on  some 
of  the  United  Railroads  cars. 

Still  another  method  of  accomplishing  the  same  result  is  by 
changing  the  position  of  the  conductor's  stand  from  the  platform 
to  the  entrance  of  the  car  body  as  previously  described  (page  190), 
and  by  the  elimination  of  the  present  form  of  guide  railing.  By 
this  arrangement  not  only  is  the  full  step  width  made  available 
for  entrance,  but  the  entire  platform  area  can  be  used  as  storage 
space  for  passengers  waiting  to  pay  their  fare. 

A  graphical  demonstration  of  this  relation  between  loading 
speed  and  width  of  entrance  is  afforded  by  Figure  48a,  based  upon 
observations  on  different  widths  of  entrance  at  the  step  Hne.  It  will 
be  seen  here,  that  the  long  platforms  of  San  Francisco  require 
approximately  27  per  cent  more  time  in  seconds  per  passenger 
than  the  Oakland  car,  using  the  full  width  entrance  with  the  radius 
bar  swung  over  to  the  bulkhead. 

At  the  Ferry  and  other  heavy  terminal  points,  it  is  very  neces- 
sary that  the  platforms  at  both  ends  of  the  car  be  available  for 
prepayment  entrances.     This  may  be  accomplished  in  two  ways : 

First:  By  turning  the  front  exit  gate  into  an  entrance  gate, 
in  which  case  only  half  of  the  full  width  between  posts  is  avail- 
able for  entrance  after  the  car  is  emptied. 

Second:  By  opening  the  blind  side  of  the  front  platform  for 
the  full  width  between  posts  for  rapid  exit,  using  front  exit  gate 
for  entrance  only. 

Height  of  Steps.  The  height  of  steps  involves  many  more 
details  of  design  than  appear  upon  the  surface.  In  fact,  to  eliminate 
the  last  inch  of  height  may  require  the  redesigning  of  the  trucks, 
bolsters,  and  car  underframing.  Furthermore,  it  must  be  re- 
called that  any  figure  representing  height  of  step  is  subject  to  con- 
siderable fluctuation  due  to  the  following  causes: 

First:  After  usage,  the  truck  springs  show  a  tendency  to  set, 
which  may  amount  to  from  Y^  to  Yi  inch. 

Second :  Under  maximum  car  load,  the  springs  may  compress 
\}i  io  2y2  inches. 

Third:  Due  to  wear,  the  wheel  diameters  decrease  from  34 
inches,  new,  to  31 J^  inches,  maximum  wear,  dropping  the  entire  car 
\Ya  inches. 

Fourth :  Due  to  wear  of  side  bearings,  steps  may  vary  as  much 
as  one  inch  in  height. 

Fifth:     Permanent  sag  in  platform  underframing. 

Due  to  one  or  all  of  these  causes,  the  step  of  a  properly  designed 
car  may  drop  from  2  to  4  inches  from  its  position  when  new.     Were 


I' 


194 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


the  car  originally  designed  with  this  low  step,  wear  and  stress 
would  result  in  the  platform  lowering  to  a  point  where  it  would 
interfere  with  the  operation  of  the  trucks.  Consequently,  to  secure 
this  necessary  truck  clearance,  the  new  cars  must  be  designed  with 
proportionately  high  steps. 

The  1912  car  submitted  by  the  United  Railroads  appears  to 
show  careful  design  with  respect  to  this  step  height,  and  the  cars, 
when  new,  will  have  the  first  step  about  15  to  16  inches  from  the 
pavement,  which  may  eventually  be  reduced  to  12  inches  by  wear 
and  settling. 

In  the  Geary  Street  car,  a  simple  device  was  made  use  of  to 
reduce  the  height  of  step  between  platform  and  car  body,  in  which 
the  car  floor  was  inclined  from  the  center  line  of  the  bolster  toward 
the  end  sill,  so  that  the  platform  step  is  two  inches  lower  than  it 
would  be  with  the  level  car  floor.  It  is  understood  that  this  plan 
will  also  be  adopted  in  the  1912  car,  except  that  the  platform  in- 
stead of  the  floor  will  be  sloped  upward  two  inches  in  the  form 
known  as  a  ramp. 

I  regard  it  as  very  necessary  that  folding  steps  be  used  in  the 
place  of  fixed  steps.     The  object  of  the  folding  step  is  two-fold: 

First.  Lifting  the  steps  on  the  blind  side  of  the  car  will  tend 
to  discourage  persons  from  endeavoring  to  steal  a  ride,  and  thereby 
incur  the  liability  of  accidents,  as  is  the  case  when  the  steps  are 
down. 

Second:  This  practically  obviates  the  possibility  of  collision 
or  other  interference  with  passing  vehicles. 

With  the  large  number  of  overhanging  steps  now  being  oper- 
ated in  San  Francisco,  the  danger  from  these  two  sources  will  be 
appreciated.  In  some  prepayment  cars,  designers  have  even  gone 
to  the  length  of  automatically  raising  the  steps  when  the  vestibule 
door  or  gate  is  closed,  so  that  while  in  motion,  the  car  is  entirely 
stripped  of  steps  in  the  lowered  position.  Cars  of  this  type  may 
be  found  on  the  College  avenue  line,  C^akland,  and  in  Boston  and 
other  cities. 

Ventilation.  Without  having  positive  knowledge  of  the  oper- 
ation of  the  ventilating  funnel  shown  on  the  1912  car,  I  believe  it 
should  operate  with  fair  satisfaction  when  the  car  is  in  motion. 
The  principal  objection  I  find  is  that  there  is  no  provision  for  the 
ventilation  of  the  closed  section  while  the  car  is  standing  still. 

It  is  unquestionable  that  the  fixed  sash  will  result  in  slightly 
lower  maintenance  expense,  but  there  will  be  times  when  it  will 
be  necessary  or  desirable  to  oi>en  the  windows  of  the  closed  section. 
The  Geary  Street  cars  have  raise  sash,  which  is  preferable  to  drop 
sash,  on  account  of  the  increased  cleanliness  and  the  fact  that  the  de- 


NEW  ROLLING  STOCK 


195 


creased  thickness  of  wall  may  be  taken  advantage  of  for  increas- 
ing the  width  of  the  aisle. 

In  conclusion,  the  1912  United  Railroads  car  may  be  regarded 
as  a  step  in  the  right  direction,  and  in  general  a  considerable  im- 
provement over  any  of  the  types  at  present  in  operation  here.  It 
will  prove  fairly  satisfactory  for  certain  sections  of  the  city  where 
streets  are  wide  enough  to  accommodate  a  wide  car.  as  in  the  Mis- 
sion. 

Some  features  are  quite  commendable,  such  as  the  use  of  the 
turtle-back  or  arched  roof  and  the  position  and  type  of  illuminated 
signs ;  also  the  lowering  of  the  steps  by  means  of  a  platform  ramp. 

But  if  the  design  is  intended  for  universal  use  throughout  the 
city,  or  a  standard  for  future  equipment  is  under  consideration, 
this  car  will  require  considerable  modification. 


p 

i 


iH' 


CHAPTER  9 

IMPROVEMENTS  IN  EXISTING  ROLLING 

STOCK* 

Improvements  in  Existing  Types — Electric  and  Cable 
Report  on  Brake  Equipment 

With  the  high  density  of  traffic  in  San  Francisco,  it  is  essential  that 
cars  using  the  prepayjment  method  of  fare  collection  are  provided  rvith  every 
facility  for  rapid  loading,  in  order  to  avoid  congestion  and  increase  both 
speed  and  line  capacity.  Unfortunately,  most  of  the  cars  now  operated 
are  unsuited  for  the  service,  due  to  inadequate  platforms,  and  this  chapter 
recommends  methods  for  increasing  loading  speed  as  well  as  other  improve- 
ments calculated  to  better  serve  and  afford  maximum  comfort  for  patrons. 
Also  are  included  suggestions  for  a  special  **hill  type**  car  and  improve- 
ment of  inadequate  cable  equipment. 

This  rolling  stock  may  be  best  analyzed  by  class  or  type,  as 
designated  by  serial  numbers  printed  upon  the  ends  and  sides  of 
the  car  bodies,  so  that  they  may  be  identified  on  the  street.  Sketches 
of  the  recommended  changes  and  alterations  are  appended  hereto. 
The  most  important  classes  to  be  considered  are  those  having  drop 
platforms,  of  which  nearly  330  out  of  a  total  of  557  double-truck 
cars  are  now  operated.  The  company  is  to  be  commended  for  its 
adoption  of  the  more  convenient  drop  platform  as  a  standard  in- 
stead of  the  flush  platform,  in  spite  of  the  greater  cost  and  weight 
and  the  widespread  use  of  the  flush  platform  type  in  neighboring 
cities. 

CONCLUSIONS  AND  RECOMMENDATIONS 

1.  The  three  improvements  essential  to  the  electric  car  equip- 
ment are  :  (a)  an  increase  in  platform  loading  capacity;  (b) 
better  unloading  facilities;  (c)  improved  seating  arrangement. 
To  secure  the  principal  result,  there  are  only  two  alternatives — 
either  lengthen  the  platform,  or  else  remodel  the  platform  fixtures 
and  remove  the  end  bulkhead;  possibly  both  will  be  advisable  in 
some  cases.  These  changes  I  believe  will  result  in  increasing  the 
speed  of  passenger  movement  at  least  25%. 

2.  Observations  under  different  conditions  consistently  indi- 
cate that  the  time  consumed  in  stops  for  loading  and  unloading 

•Formerly  Preliminary  Report  No.  7-1,  submitted  Jan.  20.   1913. 


I 


hi 


if; 


V  !i" 


198     *     SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

is  entirely  too  great.  Entrance  passages  should  be  enlarged  par- 
ticularly ou  the  short-platform  cars,  and  at  least  the  full  width  of 
the  entrance  step  (t.  e„  from  the  outer  grab  handle  to  the  stanchion) 
should  be  preserved  in  the  platform  passageway  as  far  as  the  last 
step  or  entrance  door  into  the  car  body.  This  result  may  be  accom- 
plished by  changing  the  shape  of  the  guide  railing,  and  on  the 
shorter  platform  cars  by  moving  the  controller  to  the  right,  away 
from  the  entrance.  (In  the  100  class  the  latter  is  not  necessary, 
since  great  improvement  is  possible  by  alteration  of  the  guide  rail- 
ing alone.) 

3.  Inasmuch  as  the  use  of  the  prepayment  fare  box  is  estab- 
lished end  bulkheads  should  be  removed  to  provide  the  additional 
entrance  way  made  necessary  by  this  method  of  fare  collection 
(except  in  the  100  class,  which  already  have  a  wide  bulkhead  open- 
ing) In  this  manner  a  "CaUfornia"  type  car  may  readily  be 
developed  by  locating  the  bulkheads  within  the  car  body,  forming 
a  closed  central  section  with  open  end  compartments. 

4  If  a  fare  box  is  to  be  used,  the  elimination  of  the  end  bulk- 
head is  essential,  but  in  this  case  moving  the  controller  to  the 
side  although  desirable,  will  not  be  absolutely  necessary.  On 
the  other  hand,  if  the  fare  box  is  not  used,  it  will  be  unnecessary 
to  take  out  the  end  bulkhead,  since  moving  the  controller  will 
provide  considerable  platform  space.  In  any  case,  the  clear  en- 
trance way  to  the  car  body  should  generally  exceed  24  inches.        _ 

5  Lengthening  of  platforms  is  preferable  if  the  cars  are  in 
sufficiently  good  condition  to  warrant  the  expenditure;  but  the 
change  would  not  be  worth  while  unless  each  platform  could  be 
lengthened  at  least  12  inches.  If  none  of  these  improvements 
are  carried  out,  the  short  platform  cars  should  be  retired  to  out- 
lying or  cross-town  service,  where  traffic  is  lighter. 

6  The  closed  section  of  the  ''California"  type  cars  should  have 
cross  seats,  but  in  the  end  compartments  the  maximum  amount 
of  storage  space  should  be  provided  to  accommodate  short-haul 
riders  This  necessitates  the  use  of  a  longitudinal  seat  on  that  side 
of  the  car  where  passengers  enter,  as  in  the  Geary  Street  design. 
In  the  all-enclosed  box  car,  100  class,  at  least  50^  of  the  seating 
capacity  should  be  in  cross  seats  arranged  as  in  the  1500  or  IbbU 
types  instead  of  the  present  all-longitudinal  plan. 

7  During  stormy  weather,  protection  by  windows  or  cur- 
tains' must  be  provided  in  the  "California"  type  cars  for  passen- 
gers using  the  open  sections,  otherwise  more  than  half  of  the 
seating  capacity  of  the  car  is  rendered  unavailable  at  such  times, 
when  maximum  capacity  is  demanded  by  the  excessive  rush  hour 
loading. 


EXISTING  ROLLING  STOCK 


199 


8.  In  cars  from  which  the  end  bulkheads  are  not  removed, 
such  as  the  100  class,  the  stanchion  in  the  middle  of  the  door 
opening  should  be  set  out  six  or  eight  inches  from  the  end  sill 
to  increase  the  entrance  and  exit  passageways. 

9.  The  "Cleveland"  fare  box  frame  as  hereinafter  described 
will  provide  the  maximum  storage  space  on  short  platform  cars 
using  this  method  of  fare  collection.  If  the  fare  box  is  not  used, 
the  present  type  of  guide  railing  altered  in  shape,  may  be  re- 
tained, but  any  rail  of  this  type  should  be  cut  off  at  least  24 
inches  from  the  step  or  provided  with  the  "Oakland"  radius  rod 
in  order  to  make  the  entire  step  available  for  emergency  loading. 

10.  Any  form  of  guide  railing  or  fare  box  stanchion  should 
be  movable,  so  as  to  be  located  behind  the  motorman  on  the  for- 
ward end  to  protect  him  from   interference  by  standing  passen- 
gers during  surges  of  the  car,  at  the  same  time  clearing  the  for- 
ward platform  of  obstructions. 

11.  Rapid  unloading  at  the  forward  end  should  be  facilitated 
by  the  following  means:  (a)  Removal  of  the  stanchions  now  divid- 
ing the  door  opening  (unless  bulkheads  are  removed)  so  as  to 
give  a  less  obstructed  exit  way;  (b)  moving  the  exit  gate  next 
to  the  bulkhead  in  order  that  passengers  alighting  will  not  have 
to  force  their  way  through  a  crowded  platform.  This  will  also 
have  the  effect  of  decreasing  the  necessary  length  of  safety  sta- 
tions on  the  street;  (c)  providing  a  gate  at  least  30  inches  wide 
and  of  a  type  such  as  a  sliding  gate,  which  does  not  interfere 
with  passengers  standing  on  the  platform. 

12.  All  cars  should  be  provided  with  automatic  folding  steps 
at  the  forward  exits,  and  lift  steps  at  the  rear  entrances.  With 
all  steps  raised  except  that  under  the  conductor's  control,  acci- 
dents will  be  greatly  reduced. 

13.  On  the  flush-platform  "California"  type  cars  (700  class) 
the  principal  improvements  that  should  be  made  include  the  re- 
modeled guide  railing,  storm  curtains  in  the  open  sections,  and 
a  seating  arrangement  approximatihg  the  Municipal  car  plan, 
except  that  in  such  a  narrow  car  two  rows  of  cross  seats  should  not 
be  used  in  the  closed  section;  also  the  projecting  steps  on  these 
cars,  or  any  other  type,  should  be  replaced  by  automatic  folding 
steps  to  prevent  accidents. 

14.  On  the  1300  class,  the  platforms  should  be  lengthened 
and  the  car  converted  into  the  prepayment  type  if  it  is  to  be 
operated  on  any  important  lines.  The  recommendations  made 
for  the  700  class  will  all  apply. 

15.  Power  brakes  should  be  used  on  all  double-truck  equip- 
ment especially  that  operating  within  the  congested  districts.     The 


I 


'I 

'■4 


i 


V 


200  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

exoense  of  new  brake  installation  on  cars  that  have  been  in  ser- 
vice 10  years  or  more  would  not  be  warranted,  but  such  equ.praent 
should  be  immediately  retired  to  outlying  districts. 

16.  Cable  cars  of  the  Powell  Street  lines  should  have  additional 
caoacity  and  these  short  cars  should  be  immediately  converted  mto 
he  ''California"  type  by  the  addition  of  another  open  sect.on. 
Double-end  operation  should  be  provided  ^o/.  together  wiU.  the  e- 
,„oval  of  turntables,  especially  at  the  end  o  P°-f'  Street^  In  the 
design  of  new  cable  equipment,  the  adoption  of  the  prepayment 
centi  entrance  type  should  receive  serious  consideration,  with  the 
object  of  reducing  accidents  and  obstructions  of  streets. 

17  For  hill-top  lines  encountering  long  grades  much  in  ex- 
cess of  10  or  12%.  a  fecial  type  of  car  ^^ould  be  developed  of 
light  construction  and  equipped  with  power  track  brakes  such  as 
•the  magnetic  type ;  this  car  to  be  from  35  to  40  feet  m  length  and 
seatinpf  about  36  people. 

GENERAL  DISCUSSION 

The  United  Railroads  at  the  present  time  operates  on  its  various 
lines  a  total  of  620  electric  cars,  which  may  be  divided  mto  four 
groups : 

1.     Modern  cars  either  designed  as  or  later  converted  into  the 
prepayment  type : 

Class  1500-1549     50  closed  body,  drop  platform. 

Class  1550-1749  199  closed  body,  drop  platform. 

Class     101-180      80  closed  body,  drop  platform. 

Class     700-719       20  rebuilt   "California"   type,   flush   platform 


Total 


349 


2      Modern  cars  now  operated  non-prepay :  ,  . 

Class  1300-1425  123  "California"  type,  flush  platform. 

3.  Various  old  types  almost  entirely  obsolete,  and  nearly  ready 
to  be  retired  from  service  unless  rebuilt. 

Classes  500,  600,  700,  1000  and  1100-63  single-truck  origmal 
"California"  type  cars.*  _ 

Classes  681-698,t  731-745.  1001-1024-55  double-truck  origmal 
"California"  type,  flush  platform. 


Total 


118 


f 


UK.- 


♦These  have  been   renumbered  601-663.- 
tBodies  may  be  rebuilt  for  prepay  operation. 


■T-^Z9  *~3.'^ 


EXISTING  ROLLING  STOCK 

Interurban  cars: 

Class         1-12       12  closed  56-seat  interurban    cars. 

Class  1225-1244  18  closed  48-seat-suburban  cars. 


201 


Total 


30 


Of  these  four  groups,  only  the  first  two,  both  of  which  are  cov- 
ered in  Plate  12,  will  be  dealt  with  in  detail.  The  third  group  con- 
sists of  cars  which  have  been  in  service  so  long  that  extensive  im- 
provements in  them  would  hardly  be  warranted,  unless  they  be  re- 
built. The  cars  listed  under  this  head  are  operated  at  present  on 
lines  south  of  Market  Street  for  the  most  part,  and  as  fast  as  new 
rolling  stock  is  added  these  should  be  retired  to  lines  where  the 
traffic  is  lighter. 

Loading  Time.  The  relatively  slow  loading  of  the  various 
types  of  San  Francisco  cars  has  already  been  emphasized  in  the 
discussion  of  lower  Market  Street  congestion  and  of  service,  and 
the  results  of  several  hundred  observations  are  entirely  consistent 
in  showing  that  the  attempt  to  apply  the  prepayment  principle 
under  the  unusually  severe  loading  conditions  of  San  Francisco  to 
a  car  with  short  platform  and  constricted  entrance  has  not  been  a 
success.  It  is  a  fact  that  on  cars  of  different  platform  length,  the 
relative  loading  speed  is  practically  proportional  to  the  length  of 
the  available  entrance  step,  until  the  platform  storage  space  is 
entirely  taken  up,  providing  no  further  obstruction  is  interposed  in 
the  line  of  incoming  passengers. 

Under  the  loading  conditions  in  Chicago,  which  are  not  more 
severe  than  the  terminal  and  Market  Street  loading  in  San  Fran- 
cisco, a  platform  8"  4^"  in  length  was  provided  for  a  car  body 
of  about  the  same  size  as  in  this  city,  giving  a  clear  entrance 
width  of  40  inches.  But  with  the  abrupt  vertical  grades  and  nec- 
essary platform  overhang  in  San  Francisco,  the  present  operating 
company  has  established  a  platform  length  somewhat  shorter— 
7'  4/'  If  this  length  were  taken  advantage  of  to  the  fullest  ex- 
tent, as  has  been  done  in  the  Municipal  Railway  car,  it  would  be 
suflFicient.    A  study  of  Fig.  29  has  developed  the  following  facts : 

1.  For  loading  conditions  in  San  Francisco,  sufficient  stor- 
age space  should  be  provided  on  the  platform  to  accommodate 
an  average  group  of  10  and  a  maximum  of  25  passengers  waiting 
to  pay  their  fare.* 

2.  For  average  groups  of  10  passengers,  the  loading  time  for 
the  best  of  the  San  Francisco  cars  is  27.5%  slower  than  the  lat- 

*The  Municipal  Railway  cars  are  now  carrying  from  20  to  25  passengers  on  the  rear 
platform. 


J 


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202  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

est   equipment  operated   in   Oakland,   and   for  the   short  platform 
types  65%  slower,  or  twice  as  slow  as  the  standard  cars  of  Chicago. 

3  In  spite  of  its  undoubted  advantages,  the  introduction  of 
fare  box  collection  has  resulted,  with  the  same  railing,  m  slow- 
ing up  the  loading  materially.  Even  with  properly  shaped  rail- 
ings this  would  occur,  principally  due  to  the  necessary  reduction 
of  storage  space  and  entrance  passageway  (which  are  already 
too  small  on  these  cars),  as  well  as  to  the  delay  incident  to  mak- 
ing change.  ,    wu  .. 

At  terminals  and  heavy  loading  points  it  was  recommended  that 
the  front  exit,  as  well  as  the  rear  entrance  gate,  should  be  used  for 
loading,  with  extra  conductors  stationed  at  these  points  to  receive 
additional  fares.  This  plan  has  been  put  into  operation  by  the 
the  United  Railroads  with  very  satisfactory  results,  and  the  total 
time  of  tertmnal  loading  has  now  been  reduced  to  a  point  practi- 
cally equivalent  to  that  of  the  Chicago  standard  car  loading  along 
the  street  bv  the  usual  rear  entrance. 

■  Observations  show.  Fig  48  (h),  that  although  the  front  gate  re- 
quires 25%  more  time  to  load  than  the  rear,  the  total  loading  is 
reduced  to  about  one  second  per  passenger.  Tn  other  words,  by 
this  expedient  the  present  short  platform  car  has  increased  in  load- 
ing speed  by  one-third.  ,.  .  .  j 

However,  for  the  average  street  loading  conditions,  the  speed 
is  necessarily  slower,  as  shown  by  the  dotted  line,  for  the  reason 
that  passengers  alighting  at  the  rear  end  use  part  of  the  p  at  form 
step  so  that  for  equal  conditions  the  San  Francisco  car  loading 
at  both  ends  is  about  one-third  slower  than  the  Chicago  standard 
loading  at  the  rear  end  only. 

Thus  far  the  results  of  the  new  Municipal  car  indicate  that  the 
principles  herein  expressed  are  correct,  and  that  by  the  provision 
of  ample  storage  space  the  loading  speed  of  these  cars  under  nor- 
mal conditions  will  probably  approximate  that  of  the  long  platform 
cars  used  in  Chicago. 

GROUP   I— PREPAYMENT. 
Class  1500  (1500-1549),  Plate  12(B) 

These  so-called  "Chicago"!  cars,  50  in  number,  are  a  closed 
bbdy,  44-seat,  prepay  car  weighing  52,000  pounds,  built  by  the 
American  Car  Company  and  purchased  from  the  Chicago  City 
Railway  Company  in  1906.     The  body  is  32'  4"  long— practically 

tThis  is  an  entirely  different  car  from  the  standard  developed  by  ^^e  Board  of 
Supervising  Engineers.  "^Chicago  Traction,  which  is  only  8  ft.  6  m.  wide  and  designed 
for   10  ft.   2   in.   track  centers. 


EXISTING  ROLLING  STOCK 


203 


BION  J.  ARNOLD 


6         lO        15        20       25       30      35 


FIGURE    48b— TERMINAL    LOADING    TIME,    FRONT    AND    REAR. 

Upon  the  loading  speed  of  platforms  depends  to  a  large  degree  the  ca- 
pacity of  the  line  in  periods  of  heaviest  traffic.  These  curves  are  representative 
of  75%  of  the  large  cars  operated  here,  and  show  the  total  time  of  loading,  and 
the  time  per  passenger  required  for  various  groups  boarding  at  the  Ferry 
terminal  by  both  front  and  rear  platforms.  Curves  A,  B  and  C  are  from 
actual  observation,  and  do  not  necessarily  sum  up.  The  fact  that  the  loading 
speed  of  the  San  Francisco  cars,  using  both  platforms,  is  barely  equal  to  those 
in  Chicago  using  the  rear  platform  only,  indicates  the  need  of  rearrangement 
of  fixtures  to  obtain  much  faster  loading  along  the  street. 


!|i 


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If  J 
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il« 


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204  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

the  same  as  the  Municipal  ear-but  9'  2"  wide.     The  platforms 
are  only  6'  8>4"  long  from  sill  to  bumper,  and  are  slightly  tapered. 

The  cars  were  originally  designed  for  non-prepay  operation, 
and  were  consequently  provided  with  comparatively  short  platforms 
When  they  were  converted  to  the  prepay  type,  the  platforms  were 
not  lengthened,  resulting  in  a  constricted  entrance  which  is  he 
cause  of  most  of  the  present  difficulty  in  their  operation.  In  the 
rebuilding  of  this  same  car  in  Chicago,  platforms  were  lengthened 
to  over  8  feet  and  further  tapered  to  enable  cars  to  pass  on  curves. 

Platform  Arrangement.     The  most  obvious  remedy  for  the 
loading  difficulties  in  this  1500  class  is  to  lengthen  the  platforms 
and  this  should  be  done  if  it  is  found  that  the  age  and  condition  of 
the  cars  warrant  the  considerable  expenditure  incident  to  such  an 
alteration;  otherwise  they   should  be  kept  out  of  the  congested 

district.  ,-  i 

In  any  case,  whether  or  not  it  is  considered  expedient  to  make 
this  change,  the  present  platform  equipment  should  be  re-arranged 
so  as  to  provide  the  maximum  storage  space  for  entermg  passen- 
gers at  the  point  where  it  is  most  desirable,  viz. :  opposite  the  en- 
trance The  present  constricted  entrance  is  due  to  two  defects- 
the  shape  of  the  guide  rail,  and  the  position  and  type  of  the  con- 
troller. •      1       .  • 

The  clear  space  of  24/2"  provided  at  the  step  is  almost  im- 
mediately contracted  upon  entering  the  platform  to  20/2"  between 
the  controller  and  the  guide  rail.  This  space  is  totally  inadequate 
for  loading  any  considerable  groups  of  passengers,  as  it  provides 
practically  no  storage  space  on  the  platform  where  most  needed- 
i  e  for  passengers  waiting  to  pay  their  fare.  Consequently,  the 
passengers  are  forced  to  enter  in  single  file,  and  it  is  necessary  for 
the' car  to  remain  at  a  full  stop  until  all  but  the  last  three  or  four 
passengers  have  paid  their  fare. 

There  are  two  ways  of  improving  this  situation : 

(1)  By  flattening  the  guide  rail  and  by  moving  the  step 
stanchion  so  as  to  divide  the  step  width  into  a  26-inch  entrance 
and  23-inch  exit  space. 

(2)  By  locating  the  controller  and  motorman's  stand  at  the 
right-hand  side  of  the  vestibule. 

These  improvements  provide  the  best  arrangement  possible  with 
the  present  platforms,  by  eHminating  entirely  the  narrow  throat  in 
the  entrance  passage  and  giving  ample  storage  space. 

In  general  it  appears  that  the  logical  place  for  the  motorman  s 
stand  in  a  short  platform  prepayment  car  is  at  the  side  if  a  type 
K  controller  is  used.     The  shorter  the  platform,  the  more  desirable 


EXISTING  ROLLING  STOCK 


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does  this  position  become.  This  arrangement  is  objected  to  on  the 
ground  that  the  motorman  will  be  unable  to  watch  vehicle  clearance 
as  well  from  the  side  as  he  can  from  his  present  position.  While 
unquestionably  true  regarding  vehicles  on  the  left-hand  side  of  the 
car,  he  will  have  a  better  view  of  those  on  the  right-hand  road- 
way, where  the  majority  are  to  be  found  in  accordance  with  police 
regulations. 

Guide  Rail.  In  order  to  accommodate  exceptionally  large 
groups  of  passengers,  such  as  are  encountered  at  the  Ferry  ter- 
minal, it  is  desirable  to  make  use  of  the  entire  46  inches  of  clear 
step  width  for  entrance.  The  United  Railroads  has  sought  to 
accomplish  this  result  on  its  later  cars  by  cutting  off  the  guide  rail 
about  17  inches  back  from  the  step  stanchion.  This  is  a  great 
improvement  over  the  former  design,  but  to  realize  the  full  benefit 
of  the  step  width  this  distance  should  be  at  least  24  inches. 

Another  method  of  accomplishing  the  same  result  is  by  the  em- 
ployment of  a  radius  rod  similar  to  the  one  used  at  present  in  Oak- 
land. This  provides  a  means  of  closing  the  rear  exit  if  neces- 
sary, and  at  the  same  time  forms  a  guide  rail  for  all  passengers 
entering. 

Bulkhead  Opening.  The  bulkhead  or  entrance  door  open- 
ing on  the  1500  class  car  is  40  inches  wide,  which  provides  only 
20-inch  exit  and  entrance  spaces.  The  use  of  a  fare  box  still 
further  reduces  the  rear  exit  space  to  18  inches.  Since  a  single 
file  of  passengers  past  the  fare  box  is  desirable,  this  condition  is 
most  serious  due  to  the  constricted  exit  space  which  greatly  re- 
tards unloading  from  the  forward  end. 

These  passageways  should  be  increased  by  the  removal  of  the 
bulkheads  from  the  end  to  the  inside  of  the  car  body,  thus  divid- 
ing it  into  a  middle  closed  section  and  two  open  end  sections  as  in 
the  Municipal  car.  With  the  windows  dropped  in  the  end  sections, 
this  would  provide  practically  a  "California"  type  car,  which  is 
very  desirable  for  the  San  Francisco  climate.  The  windows 
would  then  be  available  for  storm  protection. 

If  the  present  bulkheads  are  removed  and  it  is  desirable  to  use 
a  fare  box  on  the  short  platform  cars,  probably  the  best  arrange- 
ment of  platform  equipment  is  to  place  the  fare  box  directly  be- 
hind the  stanchion  with  the  conductor  standing  between,  as  shown 
in  Plate  12.  This  arrangement  is  in  use  at  present  in  Cleveland  on 
long  platform  cars,  and  makes  available  for  storage  space  more 
of  the  platform  area  than  any  other  type  of  railing  in  use.* 

*This  Cleveland  arrangement  consists  of  a  three-sided  railing  just  large  enough  to 
surround  the  fare  box  at  a  height  suflFicient  to  afford  a  convenient  grab  handle.  Prefer- 
ably, it  should  be  jointed  so  that  it  may  be  conveniently  straightened  and  set  into  floor 
sockets  behind  the  motorman  for  his  protection  as  in  the  other  types  of  movable  railing 
suggested   herein. 


206 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


>i 


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•I 


i 


Unloading.  For  obvious  reasons,  it  is  desirable  that  unload- 
ing be  done  as  speedily  as  possible,  and  that  passengers  be  en- 
couraged to  use  the  forward  exit.  To  this  end  all  possible  ob- 
structions in  the  exit  passageway  should  be  removed.  The  com- 
paratively long  time  required  to  unload  these  cars  at  present 
(often  as  much  as  1^^  seconds  per  passenger)  is  due  to  three  con- 
ditions : 

1st.  The  division  of  the  door  opening  by  a  fixed  stanchion 
usually  results  in  the  use  of  only  one-half  of  the  available  width 
— i.  e.,  20  inches  in  this  car. 

2nd.  After  reaching  the  platform,  passengers  usually  have  to 
force  their  way  through  groups  standing  on  the  platform  to  reach 
the  forward  exit  gate. 

3rd.  The  width  of  the  exit  gate  opening — only  24  inches — is 
insufficient  for  passengers  alighting  in  groups. 

The  first  defect  may  be  remedied  by  the  removal  of  the  end 
bulkheads  as  previously  recommended,  or  by  the  substitution  of 
a  short  movable  stanchion  for  the  present  fixed  stanchion  running 
from  floor  to  roof,  which  will  entirely  clear  the  door  opening  at 
the  forward  end  of  the  car. 

The  second  defect  is  due  to  the  position  of  the  forward  exit 
gate  next  to  the  bumper.  This  gate  should  be  placed  next  to  the 
bulkhead  as  in  the  Municipal  and  Oakland  cars,  in  which  position 
the  obstruction  of  the  main  exit  passageway  would  be  largely 
removed.  Objection  may  be  made  to  such  a  position  of  the  exit 
gate  on  the  ground  that  the  motorman  cannot  watch  the  steps  as 
easily  as  at  present,  thus  increasing  the  possibility  of  accidents. 
On  the  contrary,  the  very  fact  that  the  motorman  must  turn  to 
watch  the  gate  affords  additional  security  that  he  will  not  start  the 
car  until  the  gate   is   cleared. 

An  additional  necessity  for  the  location  of  the  front  exit  gate 
next  to  the  bulkhead  arises  from  the  fact  that  the  length  of  the 
safety  stations  along  Market  Street  may  be  reduced  2^^  to  3  feet, 
with  a  corresponding  reduction  in  the  obstruction  of  the  street  by 
these  long  platforms.  This  is  critical  at  Lotta's  Fountain,  where  a 
two-car  station  is  absolutely  essential.  Here,  in  order  to  avoid  in- 
terfering with  intersecting  lines  of  vehicle  traffic,  the  length  of  the 
station  is  limited  by  the  curb  lines  to  96  feet,  which  will  just  suffice 
with  the  proposed  location  of  the  exit  gate. 

The  present  exit  gate  is  as  wide  as  it  is  possible  to  make  a  single- 
leaf  sliding  gate  on  a  platform  such  as  provided  in  the  1500  class. 
But  this  exit  opening  should  be  widened  at  least  to  30  inches  by  the 
use  of  a  folding  gate,  or  a  two-leaf  sliding  gate.  This  is  partic- 
ularly necessary  at  the  Ferry  and  other  terminals  where  it  is  desir- 


EXISTING  ROLLING  STOCK 


207 


rlfi 


able  that  cars  be  able  to  load  and  unload  simultaneously  at  each  end. 
The  method  recomnrended  of  opening  the  forward  left-hand  pan- 
tagraph  gate  full  width  for  exit  is  as  applicable  to  the  present  rolling 
stock  as  to  the  proposed  new  car. 

Seating  Arrangement  The  seating  arrangement  in  these 
cars  is  the  best  to  be  found  in  any  of  the  United  Railroads  rolling 
stock  and  conforms  closely  to  that  of  the  standard  car  now  used 
in  Chicago.  If  the  bulkheads  are  removed  to  the  inside  as  recom- 
mended, either  the  present  seating  arrangement  may  be  retained 
or  that  of  the  Municipal  car  may  be  used,  with  the  result  shown 
in  Plate  12. 


Class   1550    (1550-1749),   Plate    12(C) 

These  200  cars  were  purchased  from  the  St.  Louis  Car  Company 
in  1907,  and  are  in  operation  at  the  present  time  over  many  of  the 
most  important  lines  in  the  city.  They  are  of  the  same  type  and 
have  the  same  general  dimensions  as  the  1500  class,  excepting  that 
the  platforms  are  tapered  and  are  still  shorter — only  6'  6"  over  all. 

The  platform  arrangement  is  practically  identical  with  the  1500 
class,  and  is  of  course  open  to  the  same  objections.  All  of  the  im- 
provements suggested  for  the  former  type  apply  equally  well  to 
the  1550  class.  However,  the  narrow  side  window  in  the  vestibule 
of  these  cars  will  have  to  be  widened  if  the  controller  is  moved  to 
the  side.  The  extra  cost  of  the  alteration  makes  it  more  desirable 
to  remove  the  end  bulkhead,  but  if  this  latter  change  is  not  made, 
the  controller  should  be  moved. 

The  general  seating  plan  adopted  in  the  latest  of  the  1550  class 
cars  is  good,  except  that  the  cross  seats  provide  only  36%  of  the 
total,  as  compared  with  73%  in  the  Municipal  car,  and  64%,  in  the 
1500  class.  More  cross  seats  were  not  put  in  on  the  ground  that 
it  would  constrict  the  aisle  at  the  center  of  the  car.  However, 
in  view  of  the  fact  that  a  still  narrower  aisle  is  at  present  in  suc- 
cessful use  in  the  city  of  Chicago,  it  does  not  appear  that  much 
trouble  would  be  encountered  from  this  source.  Therefore,  at  least 
half  of  the  total  should  be  in  cross  seats. 

The  last  of  the  cars  converted  to  the  prepay  type  have  the  longi- 
tudinal seat  placed  opposite  the  entrance  space,  which  is  good  de- 
sign, and  it  is  understood  that  all  remaining  cars  will  be  rearranged 
in  this  manner  during  the  annual  overhauling. 

New  Car  Bodies,  The  above  recommendations  will  apply 
if  the  car  is  to  be  operated  in  its  present  form.  All  of  these  cars, 
however,  are  about  10,000  lbs.  heavier  than  the  more  modern  equip- 


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208 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


ment  now  on  order,  and  it  may  be  that  the  saving  in  power  and 
maintenance  resulting  from  the  use  of  a  lighter  car  will  justify  re- 
placing the  present  bodies,  since  the  trucks,  motors,  and  control  are 
in  good  condition.  In  any  event,  these  heavy  cars  should  only  be 
used  on  the  most  level  routes. 


Weight 


Weight 
Equipped 

Seat 

48,000 

46,000 
52,000 
56,000 
38,000 

1000 

1045 

1180 

1270 

884 

14,000 
38,000 
33,000 
32,000 
40,000 

500 
864 
825 
762 
1000 

80,000 
52,000 

1430 
1080 

12.000 
14,000 
11,200 

414 
389 
324 

Rklativk  Weights  of  Equipment 

Seating 
Capacity' 

Prepay  Electric—  '^°**^ 

Geary    St.— "California"    4S 

101-180  —Closed    44 

1500-1549— Closed     44 

1550-1749— Closed    44 

700-1719  —"California    43 

Non-f^repay  Electric — 

600-663  —Original  "California,"   single   truck....  28 

681-698  —Original  "California"    44 

731.745  —Original  "California"    40 

1001-1024— Original  "California"    42 

1300-1425— "California"    40 

Interurban — 

1-12    —Closed    56 

1225-1244— Closed    48 

Cable — 

Powell  Street— Half  open,  half  closed 29 

Sacramento   Street— "California"    36 

California    Street— "California"     34 


Class  100  (101-180)  Plate  12(A) 

These  80  cars  are  of  the  closed  body,  44-seat,  prepayment  type 
purchased  in  1911,  having  approximately  the  same  body  dimensions 
as  the  two  types  previously  discussed,  and  weighing  46,000  pounds. 
They  have  7'  4"  tapered  platforms,  being,  with  the  exception  of  a 
few  rebuilt  cars,  the  only  ones  owned  by  the  United  Railroads  orig- 
inally designed  for  prepayment  operation. 

The  platform  congestion  in  these  cars  may  be  relieved  by  adopt- 
ing several  of  the  suggestions  made  for  the  previous  types.  Al- 
though moving  the  controller  is  desirable,  it  is  not  so  necessary  in 
this  type  since  an  increase  in  the  pa.ssage  width  of  fully  35%  may 
be  obtained  by  altering  the  guide  rail  alone,  or  using  the  "Cleve- 
land" rail. 

The  seats  provided  on  this  class  are  entirely  longitudinal,  a 
type  which  seems  hardly  justified  in  so  wide  a  car  (9'  2")  since 
ample  aisle  space  can  be  secured  with  cross  seats.  At  best,  longi- 
tudinal seats  are  too  unpopular  to  encourage  riding,  and  should  be 

•  On  basis  of  17  inches  per   passenger   for  longitudinal  seats. 


If  i 


EXISTING  ROLLING  STOCK 


209 


avoided  if  possible — particularly  in  cars  which  operate  over  severe 
grades.  The  seating  arrangement  should  be  altered  so  as  to  ap- 
proximate either  the  Municipal,  1500  or  1550  class  layout,  with  at 
least  50%  cross  seats. 

The  type  of  exit  gate  used,  while  closing  flat,  unfortunately 
takes  up  considerable  platform  space  when  opened,  very  often 
striking  passengers  waiting  to  get  off.  It  should  be  altered  so  as  to 
remove  this  defect,  or,  preferably,  should  be  replaced  by  a  sliding 
gate,  since  the  platforms  are  long  enough  to  permit  a  fairly  large 
exit  opening.  In  either  case,  this  gate  should  be  placed  next  to 
the  bulkhead. 

Class  700  (700-719) 

The  cars  of  this  class,  20  in  number,  are  of  the  "California"  pre- 
payment type,  with  flush  or  continuous  platforms.  They  were 
rebuilt  by  the  United  Railroads,  from  former  cable  car  under- 
framing.  These  cars  are  only  8'  2"  wide — the  narrowest  of  all  the 
prepay  equipment  operated  in  the  city.  Cross  seats  are  used,  never- 
theless. 

While  ample  space  is  provided  on  the  platforms,  the  entrance 
passage  is  reduced  from  34  inches  at  the  step  to  24  inches  at  the 
controller  due  to  the  shape  of  the  guide  rail.  By  flattening  this 
rail,  a  uniform  entrance  width  of  34  inches  may  be  obtained,  and 
still  leave  sufficient  room  for  an  exit  passageway  and  for  the  con- 
ductor. 

The  seating  arrangement  is  much  the  same  as  is  proposed  for 
the  United  Railroads'  new  car,  and  is  open  to  the  same  objections*, 
which,  however,  are  much  more  pronounced  here  on  account  of  be- 
ing applied  to  a  narrower  car.  If  any  more  of  these  cars  are  built, 
the  seating  plan  should  provide  half  cross  seats  on  the  inside  section. 
And  the  open  sections  should  be  arranged  similar  to  the  Municipal 
cars  to  afford  greater  storage  space  opposite  the  entrance. 

The  type  of  compressor  used  is  not  well  adapted  for  suspension 
beneath  the  car  floor,  and  in  the  position  shown.  Plate  12  (F),  the 
least  obstruction  to  much-needed  floor  space  will  result,  since  sand 
boxes  should  be  located  so  as  not  to  consume  valuable  storage  space 
at  the  entrance  step,  as  at  present. 

There  is  now  no  protection  for  passengers  on  the  outside  sections 
during  inclement  weather.  As  in  the  other  "California"  type  cars, 
windows  or  storm  curtains  are  necessary  in  the  open  sections. 

The  steps  on  the  700  class  project  8>^  inches  beyond  the  car 
body,  resulting  in  an  over-all  width  of  9'  7",  exceeding  the  largest 

•Discussed    in    the   preceding   chapter. 


2 1 0  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

car  body.  They  should  be  changed  to  the  automatic  folding  type 
if  the  cars  are  to  be  run  along  business  streets,  but  in  any  case, 
the  projecting  steps  are  most  undesirable  as  they  are  a  fruitful 
source  of  accidents. 


GROUP  II— NON-PREPAY 

Class  1300  (1300-1424),  Plate  12(F) 

These  cars,  123  in  number,  are  of  the  "California"  flush  plat- 
form type  with  entrances  located  next  to  the  closed  compartment. 
They  were  purchased  in  1903  and  1904  from  the  St.  Louis  Car 
Company.  As  at  present  arranged,  they  are  not  adapted  to  the 
short-haul  riding  found  in  San  Francisco,  since  very  limited  plat- 
form storage  space  is  provided.  Consequently,  passengers  stand 
directly  in  the  entrance  and  exit  passageway,  necessarily  resulting 
in  very  slow  loading  and  unloading.  Further,  the  motorman 
cannot  watch  the  exit  easily,  which  is  more  important  in  a  non- 
prepayment  than  in  a  prepayment  car,  where  a  closed  gate  pro- 
tects the  exit. 

It  is  desirable  that  these  cars  be  converted  into  the  prepay 
type.*  This  may  be  done  without  altering  the  body  under-fram- 
ing, but  preferably  by  extending  each  platform  two  or  three  feet 
and  changing  the  steps  to  the  forward  position.  The  recom- 
mendations for  the  700  class  apply  equally  to  this  1300  class. 

Union  Street  Cars 

The  present  cars  of  the  Union  Street  line  are  entirely  inade- 
quate for  proper  service  on  any  important  thoroughfare  or  trunk 
line.  They  are  of  the  same  type  as  the  single-truck  cars  operated  on 
the  less  important  lines  of  the  United  Railroads,  such  as  Sixth 
and  Sansome,  Visitacion  Valley,  etc.  The  principal  deficiency  is 
in  motor  capacity,  which  makes  it  necessary  to  ascend  the  long 
grades  on  the  series  position  of  the  controller,  resulting  in  an 
average  speed  of  only  6.9  miles  per  hour. 

If  the  recommended  extensions  are  constructed,  it  will  be  possi- 
ble to  operate  standard  Municipal  Railway  equipment  on  the  low- 
level  sections  of  this  Union  Street  line  via  Steiner  and  Greenwich 
Streets,  in  addition  to  hill  service  over  the  present  route. 

In  any  event,  it  will  probably  be  desirable  to  design  a  special 
double-truck  car  of  the  "California"  type  for  hill-top  service 
throughout  the  city  on  such  lines  as  Union  Street,  comprising  the 

•It  is  understood  that   this   reconstruction   is   already  under  consideration. 


> 


n 


EXISTING  ROLLING  STOCK 


211 


lightest  possible  construction  and  ample  motor  and  brake  capac- 
ity. Such  a  departure  from  the  standard  type  adopted  for  the 
remainder  of  the  city  is  believed  to  be  unavoidable. 

Owing  to  the  extreme  grades  and  the  sharp  vertical  curves 
encountered  on  the  Union  Street  line,  it  is  probable  that  a  car 
from  35  to  40  feet  in  length,  seating  about  36  passengers,  would 
be  most  suitable. 

Cable  Cars 

The  "California"  type  cars  now  operated  on  the  Sacramento 
and  Castro  Street  lines  are  comparatively  satisfactory  in  general 
arrangement,  although  their  weight— 14,000  pounds— is  rather 
high  for  cable  equipment.  On  the  other  hand,  the  cars  used  on 
the  Powell  Street  route,  carrying  a  heavier  traffic  than  any  other 
cable  line  in  the  city,  are  the  smallest  on  the  system,  and  are 
totally  inadequate  for  the  traflfic.  The  Powell  Street  cars  should 
be  changed  at  once  to  the  "California"  type  similar  to  that  used 
on  California  and  Sacramento  Streets,  and  should  be  equipped 
for  double  end  operation,  thus  eliminating  the  turn-tables,  espe- 
cially that  on  Powell  Street,  which  constitutes  an  unwarranted 
obstruction  to  traffic  on  a  very  important  thoroughfare  already 
too  narrow. 

These  changes  will  necessitate  the  addition  of  a  second  open 
section,  and  possibly  the  shortening  of  the  present  one  in  order 
to  keep  the  length  and  weight  of  the  car  within  reasonable  limits. 
It  is  essential  that  there  be  an  entrance  on  each  side  of  the  car  at 
either  end,  and  these  passageways  should  be  at  least  24  inches 
wide  instead  of  the  single  18-inch  space  now  provided  on  the  open 
end  of  the  present  Powell  Street  car.  Also  the  clear  width  of 
door  openings  in  the  closed  section  should  be  increased  from  20 
inches,  as  at  present,  to  at  least  26  inches. 

The  general  design  of  the  car  operated  by  the  California 
Street  Cable  Railway  seems  to  be  well  suited  to  conditions  in  San 
Francisco,  especially  in  the  matter  of  weight — 11,000  lbs. — which 
probably  represents  the  minimum  for  a  car  of  this  size. 

It  is  possible  by  the  adoption  of  the  center  entrance  plan,  to 
produce  a  prepayment  cable  car.  In  this  case  the  gripman  will 
have  to  be  placed  on  the  side  and  the  grip  operated  by  rods  in 
some  such  manner  as  in  the  present  California  Street  cars.  Pres- 
ent indications  are  that  cable  traction  will  remain  a  necessity  on 
the  heavier  grades  of  San  Francisco  hill  lines,  and  an  eflFort  should 
therefore  be  made  to  perfect  such  a  design  for  future  cable 
equipment.  But  it  should  be  stated  that  as  a  cable  car  can  only 
operate  at  a  fixed  maximum  speed,  and  thus  cannot  make  up 
much  lost  time,  the  delays  resulting  from  the  prepay  plan  may 


w 


' 


2 1 2  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

become  serious  unless  especially  large  storage  capacity  be  made 
available  at  the  entrances.  There  is  no  doubt  that  the  origmal 
"California"  type  car  can  load  faster  than  any  other  now  used  m 
San  Francisco. 

Brake  Equipment 
The  subject  of  brake  equipment  is  one  receiving  attention  in 
all  large  cities,  and  widely  diverse  opinions  are  held  as  to  the 
proper  type  of  brakes  for  various  classes  of  rolling  stock. 

In  San  Francisco,  air  brake  equipment  is  used  on  all  electric 
cars   with   the   exception   of   39   double-truck   and   63   smgle-truck 
cars  of  the  original  "California"  type.    This  does  not  include  the 
cable  cars,  all  of  which  are  equipped  with  hand  wheel  and  track 
brakes      Of  the  equipment  now  controlled  by  hand  brakes,  the 
double-truck  cars  weigh  from  32,000  to  34,000  pounds  equipped, 
but  without  passenger  load;  and  the  single-truck  types  weigh 
about  14,000  pounds  equipped;  double-truck  cars  operated  by  air 
brakes,  from  38,000  to  80,000  pounds,  equipped.    In  analyzing  the 
accident  account  of  street  railways  operating  hand  and  air  brake 
cars  in  some  of  the  large  cities  of  the  country,  it  appears  that 
there  is  a  more  or  less  clearly  defined  line  which  constitutes  a 
practical   limit  for  the  operation  of  these  two  types  of  brake 
equipment,  and  there  are  involved  the  factors  of  type  and  weight 
of  car   scheduled  speed,  character  of  territory  traversed,  kind  of 
street 'traffic  encountered,  prevalence  of  bad  rail  conditions,  etc., 
so  that  it  is  impossible  to  establish  a  definite  limit  for  universal 
application.  The  standard  "Chicago"  car  with  air  brake  equipment 
is  able  to  stop  within  a  distance  of  145  feet,  under  maximum  brake 
application  when  running  at  maximum  speed— about  24  miles  per 

hour.  ,    ,    ^.  , 

Comparative  braking  tests  in  New  York  City,  made  upon  a  car 

weighing  38,000  pounds,  and  running  at  a  speed  of  about  17  miles 
an  hour,  showed  an  average  braking  distance  of  114.2  feet  for  air 
brakes  and  141.6  for  hand  brakes.  The  minimum  distance  ob- 
served' was  105  feet  for  air,  and  128  feet  for  hand  brakes.  This 
means  that  the  air  brakes  stop  the  car  within  2.8  lengths,  and 
hand  brakes  within  3.5  lengths.  Recent  discussion  of  this  subject 
resulted  in  an  order  issued  by  the  Public  Service  Commission  of 
the  First  District  to  equip  all  double-truck  surface  passenger  cars 
weighing  over  37,000  lbs.  with  power  brakes  and  geared  hand 
brakes,  which  order  was  further  modified  with  the  intention  that 
in  the 'future  all  new  equipment  should  be  furnished  with  both 
power  and  hand  brakes.  This  order  undoubtedly  contemplated 
the  exclusive  installation  of  double-truck  cars  operating  within 
the  city. 


I 


EXISTING  ROLLING  STOCK 


213 


In  San  Francisco,  those  cars  which  are  not  equipped  with 
power  brakes  have  two  types  of  lever  hand  brakes:  (1)  wheel 
brake,  (2)  track  brake.  The  track  brake  undoubtedly  gives  ad- 
ditional security  over  the  ordinary  hand  wheel  brake.  Moreover, 
the  hand  brake  cars  are  of  the  older  styles,  and  will  unquestion- 
ably be  retired  in  the  near  future.  Consequently,  it  is  not  a 
justifiable  expense  to  equip  all  of  these  older  cars  with  air  brakes. 
If  any  line  may  be  drawn,  I  would  recommend  that  the  single- 
truck  cars  be  allowed  to  run  with  their  present  brake  equipment 
and  also  any  double-truck  cars  now  in  service  that  have  had  more 
than  ten  years'  wear. 

All  of  these  cars,  however,  should  be  kept  off  of  the  principal 
thoroughfares  and  should  be  used  on  the  outlying  lines,  where 
the  density  of  the  street  traffic  is  a  minimum.  I  understand  the 
practice  of  the  operating  company  is  to  use  power  brakes  on  all 
cars  over  33,000  lbs.  in  weight,  equipped,  which  is  satisfactory. 
If,  however,  it  is  determined  to  operate  any  new  double-truck 
cars  of  lighter  weight,  I  should  still  recommend  that  power  brakes 
be  used. 

Track  Brakes.  For  so-called  hill  lines,  where  the  neces- 
sities of  routing  require  operation  over  grade  much  in  excess 
of  10  to  12%,  I  believe  that  it  would  be  hazardous  to  attempt  to 
operate  a  fast  schedule  without  the  assistance  of  some  form  of 
power  track  brake,  especially  for  a  large  car  of  40  seats  or  more 
which  will  probably  weigh  in  excess  of  40,000  lbs.  Although  it  is 
true  that  in  San  Francisco,  climatic  conditions  are  such  that  a 
clean  rail  is  usually  available,  on  which  air  brakes  would  be  safe, 
yet  the  occasional  occurrence  of  slippery  rail  and  the  danger  of 
over-running  stops  through  too  rapid  coasting  down  grade  invites 
serious  accidents. 

The  magnetic  track  brake  has  been  developed  for  meeting  just 
such  conditions,  and  I  should  recommend  that  careful  study  be 
given  to  this  form  of  equipment  with  a  view  of  applying  it  to 
these  hill  lines,  as  it  has  been  successfully  applied  in  other  cities- 
Los  Angeles,  Portland,  and  Seattle— with  grades  as  high  as  14% 
and  standard  heavy  cars.  Although  this  brake  equipment  now 
includes  a  separate  controller  on  the  platform,  it  is  believed  that 
this  could  be  modified  by  locating  the  brake  controller  beneath 
the  platform  or  car  body  in  order  to  clear  the  platform  of  the 
additional  obstruction  which  would  arise  from  having  two  con- 
trollers. 

This  magnetic  track  brake,  with  its  latest  improvements,  un- 
doubtedly offers  greater  security  than  it  is  possible  to  obtain  with 
any  other  kind  of  brake  equipment  at  present  manufactured,  for 


w. 


1 


214 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


the  reason  that  the  retarding  force  is  applied  not  only  to  the 
wheels  but  also  to  the  motors,  and  especially  to  the  rail  surface, 
so  that  the  danger  of  skidding  in  making  a  quick  stop  is  thus 
minimized.  It  is  possible,  with  this  equipment,  on  a  level  track 
to  stop  a  heavy  modern  car  running  at  full  speed,  21  miles  per 
hour,  practically  within  its  own  length — i.  c,  within  less  than  50  feet. 
This  is  far  beyond  the  limits  of  the  usual  air  brake  equipment. 


■  ■■Mb 


mm  '  ^^ 


T^m 


mi' 


rj  ^.*^r^'''*J*!P^?TF'>fM?** 


POSSIBLE    CAR    RECONSTRUCTION. 

(D— 1300-1425  class;  (2)— lengthened  and  changed  to  prepayment  type. 
(3)_Powell  Street  cars;  (4)— lengthened  and  changed  to  the  double-end, 
Clay  Street  type. 


PART  IV 

SUPPLEMENTAL  IMPROVEMENTS  IN 

CITY  PLAN 


Chapter  ]0.    Tunnels  Into  Harbor  View. 


Chapter  1 1 


Market  Street  Extension  Tunnel  Un- 
der Twin  Peaks. 


Chapter  1 2.    Street  and  District  Improvements. 


I 


Chapter  13. 


Ferry  Terminal  Improvements  at  Har- 
bor Front. 


K 


INTENTIONAL  SECOND  EXPOSURE 


214 


SAN   FRANCISCO  TRANSPORTATION  FACILITIES 


the  rca-on  thai  tin.-  rclardin^  I'orco  i>  a])|)lic(l  not  only  to  the 
wheels  1)111  al>«>  It'  the  niolor^,  and  especially  to  the  rail  surface, 
-()  thai  the  daiii^er  ol"  skuldiiii;"  in  niakini;-  a  (luick  stop  is  thus 
minim ved.  it  i^  p<)>si1)le.  with  this  e<pnpmenl,  on  a  level  track 
{i>  stoj)  a  hea\  \  modern  oar  rnnnim;-  at  t'nll  speed.  21  miles  per 
hour,  pi.u-iicallv  within  its  own  lenj^tli — /.  (•..  within  less  tlian  50  feet. 
rhi>  is  t'.'ir  hevi.nd  the  limits  of  the  usual  air  hrake  eciuipment. 


■  ■■■■HiiiPIMII 


.z^^'&m 


r"*-^,*: 


-   X 


BST/tUCr/Of^ 

ro  SA/r/fA^ce 


•■ffnir^ift^ '!»'  ■  .F "  ^TW'f '  w"  "w 


mSSir.LE    CAR     RKCOXSTRITTIOX. 

(  1  )__13(K)-14J5  cla»;  (  i )  — Icnmluiud  and  chani-vd  to  prepayment  type. 
,3,__lN,urll  Sirrct  car.s;  (4)— Knythened  and  changed  to  the  double-end, 
Llav  Sirtct  type. 


PART  IV 

SUPPLEMENTAL  IMPROVEMENTS  IN 

CITY  PLAN 


Chapter  10.    Tunnels  Into  Harbor  View. 

Chapter  1 1 .     Market  Street  Extension  Tunnel  Un- 
der Twin  Peaks. 

Chapter  12.     Street  and  District  Improvements. 

Chapter  13.     Ferry  Terminal  Improvements  at  Har- 
bor Front. 


f 

i! 


'I 


I 


CHAPTER  10 

TUNNELS  INTO  HARBOR  VIEWt 

Projects  Investigated* 

Tunnel  under  Fort  Ma»on. 
Stockton  Street  tunnel.  Steiner  Street  tunnel. 

Broadway  tunnel  Pierce  Street  tunnel 

Fillmore  Street  tunnel  Divisadero  Street  tunnel 

Diagonal  tunnel  from  Union  Square  to  Harbor  Vienr. 

The  steep  hills  of  San  Francisco  in  so  man^  cases  render  electric  rail- 
iPflp  operation  impracticable  in  the  absence  of  contour  streets,  that  the 
many  intervening  valle}fs  are  often  practicall})  inaccessible  without  tunnels, 
resulting  in  large  areas  remaining  undeveloped,  although  close  to  the  center 
of  the  ci/p.  Of  these  tracts  one  of  the  largest  is  Harbor  Vierv,  and  the 
building  of  such  tunnels  is  made  particularly  urgent  in  order  to  serve  the 
heavy  traffic  to  the  Panama-Pacific  Exposition.  In  this  chapter  are  dis- 
cussed the  various  tunnel  routes  that  have  been  suggested,  also  neiv  ones, 
with  final  recommendations  thereon.  However,  in  recommending  the  im- 
mediate construction  of  certain  of  these  tunnels,  it  has  been  considered 
that  the  large  irrvestment  necessary  would  not  be  justified  for  the  Exposi- 
tion traffic  alone,  but  that  they  should  also  be  in  a  logical  position  for 
facilitating  the  future  development  of  the  city. 

CONCLUSIONS    AND     RECOMMENDATIONS 

1.  The  success  of  the  Panama-Pacific  International  Exposition 
largely  depends  upon  securing  suitable  entrances  into  Harbor  View 
for  transporting  both   passengers   and   freight  to  the   Exposition 

grounds. 

2.  A  tunnel  under  Fort  Mason  should  be  built  so  as  to  make 
it  practicable  to  extend  the  railroad  now  on  Beach  Street  on  a 
low  grade,  practicable  for  the  operation  of  steam  railroad  traffic 
as  well  as  heavy  trucking  and  street  railway  cars.  As  an  alternative, 
a  diagonal  alignment  from  Jefferson  Street  on  the  east  to  Beach 
Street  on  the  west  may  be  substituted  to  avoid  the  legal  obstacles 
to  the  use  of  Beach  Street  between  Polk  Street  and  Van  Ness 
Avenue  now  partly  occupied  by  the  Spring  Valley  Water  Company. 
If  this  tunnel  is  constructed  immediately,  it  will  be  available  for  con- 

vFormerly  Preliminary   Reports   Nos.    2   and   3,   submitted   Feb.    9th,   and   March   29th, 

'^'^•This    list    includes    Harbor    View    projects    only.     Additional    tunnel    projects    are 
discussed    in    Chapters    11    and    12. 


il 


IV, 

I  ^  i 
■  t 


218  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

veying  to  the  Exposition  grounds  much  of  the  material  to  be  used  in 
the  construction  of  many  of  the  buildings  and  exhibits,  and  will 
also  make  it  possible  to  greatly  reduce  the  cost  of  hauling  freight 
by  teams  into  these  grounds. 

3.  The  construction  of  the  Stockton  Street  tunnel  from  Sutter  to 
Sacramento  Streets  should  be  begun  at  once  so  that  it  may  be  avail- 
able for  team  and  street  railway  traffic  via  Stockton  Street,  Colum- 
bus Avenue,  and  the  Fort  Mason  tunnel  or  North  Point  Street 
to  the  Exposition  grounds. 

4.  The  Broadway  tunnel  from  Mason  to  Larkm  Streets  should 
also  be  constructed  at  the  earliest  practicable  date,  as  a  project  sup- 
plemental to  the  Stockton  Street  tunnel  for  routing  cars  more 
directly  from  both  the  business  center  and  from  the  Ferry  to  Har- 
bor View. 

5.  Considering  no  changes  in  the  elevations  of  present  street 
intersections,  the  Fillmore  Street  tunnel  should  be  built  immedi- 
ately extending  from  Sutter  Street  to  Filbert  Street,  with  the  neces- 
sary street-widening  at  portals  to  preserve  the  roadways  at  either 
side  for  street-cars,  traffic,  and  sidewalks. 

6.  It  is  not  advisable  to  undertake  at  the  present  time  the  con- 
struction of  more  than  one  tunnel  through  the  Pacific  Heights  ridge, 
either  for  traffic  necessities  during  the  Exposition  or  immediately 
thereafter.  A  tunnel  through  Divisadero  Street,  with  portals  so 
located  as  to  provide  a  high-level  route,  may  become  a  future  neces- 
sity if  the  Harbor  View  valley  develops  into  a  commercial  district 
after  the  close  of  the  Exposition.  Regarding  the  development  of 
commercial  interests  on  these  parallel  streets  ( Fillmore  and  Divisa- 
dero Streets),  these  two  tunnel  projects  should  not  be  considered 
competitive,  but  rather  coincidental. 

7.  For  a  low-grade  traffic  and  railway  tunnel.  Pierce  Street 
is  impracticable  as  a  possible  tunnel  site,  not  only  because  its  ap- 
proach grades  are  almost  prohibitive  for  the  purpose  immediately 
in  view,  but  also  for  the  reason  that  a  tunnel  through  Pierce  Street 
would  effectually  block  for  many  years  to  come  a  consideration  of  the 
two  tunnels  ultimately  needed— Fillmore  and  Divisadero  Streets— be- 
cause of  their  proximity.  It  is  therefore  better,  in  my  judgment, 
to  follow  a  logical  program  of  development,  than  to  compromise 
both  projects  in  the  interests  only  of  the  very  immediate  future. 

GENERAL  DISCUSSION 

'in  these  studies,  all  projects  have  been  rejected  that  would  not 
provide  the  thing  moct  needed— one  direct,  low-level  and  low-grade 
traffic  route  from  the  Mission  to  Harbor  View— which  could  be 
used  for  transporting  the  heavier  materials  to  the  Harbor  View 


HARBOR  VIEW  TUNNELS 


219 


site  with  its  possible  future  development  as  a  warehouse  and  manu- 
facturing district.  None  of  the  high-level  tunnels  will  permit  of 
approach  grades  under  5%,  although  entirely  suitable  for  street  rail- 
way and  lighter  vehicle  traffic  only.  Whatever  the  ultimate  char- 
acter of  the  development  of  the  Harbor  View  district,  at  least  one 
lozv-level  route  is  absolutely  essential,  and  therefore  the  Fillmore 
Street  tunnel  has  been  adopted  in  spite  of  its  length.  All  of  the 
Harbor  View  tunnels  are  long  if  planned  as  low-level  projects,  and 
in  view  of  this  fact,  a  difference  in  length  of  two  blocks  either  way 
does  not  seem  to  me  a  determining  factor  as  between  locations. 

Type  of  Bore,  The  question  of  type  of  tunnel — whether  single- 
bore,  double-bore,  or  individual  bores  for  traffic  and  railway — 
should  be  determined  on  a  basis  of  convenience  and  cost.  As 
all  of  these  tunnels  paralleling  Fillmore  Street  are  intended  for  high- 
speed operation,  the  tracks  must  be  separated  from  the  roadway; 
consequently,  if  double-bore,  considerable  expense  can  be  saved, 
particularly  over  the  cost  of  independent  bores,  by  driving  both 
bores  at  once. 

A  route  has  been  sought  wherebv  a  sJwrt  low-level  and  low- 
grade  traffic  tunnel  could  be  secured  independent  of  the  railway 
tunnel,  but  the  northerly  approach  grades  prohibit;  consequently  I 
favor  a  combined  tunnel,  whether  single  or  double-bore  being  im- 
material. A  single-bore  tunnel  would  be  more  attractive  on  ac- 
count of  its  roomier  appearance,  especially  in  so  long  a  bore,  but 
the  roadway  and  trackway  would  be  cramped  by  the  addition  of  one 
sidewalk  not  absolutely  required.  The  double-bore  tunnel  has  the 
advantage  of  a  larger  roadway,  and  the  disadvantage  of  slightly 
higher  cost.  In  both  arrangements,  teams  should  be  separated  from 
foot  passengers,  which  is  in  some  respects  desirable.  And  this 
disposition  of  the  double-bore  involves  less  unbalancing  of  the  arch 
and  consequently  lower  cost,  than  will  be  the  case  if  roadway  and 
sidewalk  occupy  the  same  bore,  necessitating  spans  of  32  and  22  feet, 
as  against  spans  of  25  and  29  feet,  respectively.  (Fig.  49.) 

Walkways.  Considering  various  arrangements  of  roadway, 
trackway,  and  sidewalks,  I  have  concluded  that  it  becomes  practi- 
cally imperative  to  locate  the  sidewalk  adjacent  to  the  partition  wall, 
with  arch  openings  spaced  every  75  or  100  feet  communicating  be- 
tween the  two  bores.  This  communication  is  necessary  to  provide 
means  of  egress  from  the  long  bores  in  case  of  urgent  necessity 
either  from  vehicles  or  from  cars.  This  arrangement  has  the  slight 
disadvantage  of  requiring  foot  passengers  to  cross  the  tracks  at  either 
portal,  but  I  do  not  consider  this  serious,  on  account  of  the  fact 
that  the  walkway  will  probably  not  be  used  to  any  great  extent.  One 
sidewalk  will  suffice  for  the  long  tunnel,  in  my  judgment,  and  the 


V  ! 


'r 

I 


Si 


FIG.  49 


FIGURES  49.  50  AND  51-SECTIONS  OF  TUNNELS  TO  HARBOR  VIEW. 

Figure  49.  Section  recommended  for  Fillmore  Street  tunnel,  com^ 
oletely  segregating  vehicle  and  railway  traffic,  thus  permitting  high  speed 
operation,  with  alternative  plans  for  foot-passageways  "^/"g^^^^^^^f^^^^f'^;^:.^ 

Figure  50.  Single-bore  section  for  Fillmore  Stree  tunnel,  with 
vario^  classes  of  traffic  separated  only  by  railings.  The  limitations  of  a 
20-foot  road-way  for  three  lines  of  vehicles  are  evident. 

Figure  51.  Single-bore  arrangement  for  Divisadero  Street  and  «roaa- 
way  tunnels.  This  section,  being  six  feet  wider  Pf'^'^its  more  side- 
walk space,  and  ample  room  for  three  lines  of  vehicles  in  the  center  road- 
way. 


HARBOR  VIEW  TUNNELS 


221 


20  ft. 

22 

ft.* 

12 

ft. 

only  reason  for  providing  a  second  one  in  the  single-bore  arch  is  to 
utilize  the  waste  space  near  the  wall  to  the  best  advantage. 

Roadways.  As  one  of  the  primary  conditions  in  selecting  this 
first  tunnel  route  to  Harbor  View  is  to  provide  a  low-level  and  low- 
grade  route  for  heavy  trucking,  vertical  clearance  must  be  sufficient 
to  accommodate  vehicles  loading  up  to  a  height  of  12  to  15  feet. 
This  manifestly  precludes  any  arrangement  but  a  central  roadway, 
which  divides  the  arch  as  follows: 

Fillmore  Street,  center  roadway, 
Street  cars,  11  ft.  along  each  curb, 
Sidewalks,  6  ft.  along  each  curb, 

Total,  54  ft. 

In  concluding  upon  a  minimum  roadway  width  of  20  to  22  feet, 
the  following  principle  has  governed,  viz.:  to  provide  for  two-line 
traffic  for  the  wider  and  heavier  vehicles,  and  three-line  traffic  for 
the  narrower  and  lighter  vehicles,  such  as  automobiles.  Trucks  re- 
quire nine  feet,  or  at  least  ten  feet  to  pass.  Automobiles  and  light 
delivery  wagons,  whose  wheel  gauge  approximates  that  of  the  street 
railway  tracks,  require  about  6^  or  7^  feet  to  pass.  This  road- 
way of  22  feet  therefore  will  enable  either  heavy  or  light  vehicles 
to  pass  in  the  tunnel,  or  a  third  line  of  light  vehicles  to  pass  through 
the  center,  going  in  either  direction,  which  latter  will  be  the  most 
necessary  requirement. 

In  the  double-bore  arrangement,  however,  some  increased  width 
may  be  rendered  available  for  the  roadway  by  sacrificing  one  side- 
walk and  devoting  one  bore  to  a  roadway  25  feet  in  width,  and  the 
other  to  trolley  cars  and  a  7-foot  sidewalk. 

Special  Work,  The  arrangement  of  track  special  work  at  the 
southern  portal  is  unfortunately  somewhat  complicated,  but  as  it  is 
probable  that  all  cars  entering  the  tunnel  will  do  so  directly  north 
on  Fillmore  (via  Ellis-O'Farrell,  not  via  Sutter),  the  worst  pair  of 
curves  is  eliminated.  It  will  be  desirable  to  set  back  the  portal  wall 
about  25  ft.  north  of  the  Sutter  Street  building-line,  in  order  to 
permit  the  best  arrangement  of  this  special  work. 

Regrading.  By  a  considerable  amount  of  regrading  of  en- 
trance and  lateral  thoroughfares  in  the  vicinity  of  these  various 
tunnel  portals,  it  would  be  possible  to  considerably  ease  the  grades 
and  shorten  all  of  these  tunnels,  thereby  making  them  more  con- 

*Footnote — ^The  above  is  based  upon  a  street  car  width  of  9  ft.  over-all.  correspond- 
ing to  a  trackway  of  11  ft.,  but  it  is  probable  that  in  the  future,  the  width  of  street 
cars  operating  throusrh  this  tunnel  will  be  limited  to  8  ft.  6  in.,  and  bv  reducinR  the 
side  clearance  to  the  very  minimum,  a  trackway  of  10  ft.  could  be  used,  giving  a 
roadway  of  22  ft.,  instead  of  20  ft.  This,  however,  is  the  maximum  roadway  that  can 
be  obtained  in  the  single-bore  arch,  and  provides  extremely  small  clearance  margins,  in 
fact  so  small  as  to  render  the  use  of  the  single  bore  extremely  questionable. 


222 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


venient  and  desirable.  This,  however,  involves  a  large  amount  of 
damages.  The  total  cost  of  the  tunnel  could  not  be  materially  re- 
duced by  such  regrading;  rather,  it  might  be  increased  in  some  cases, 
and  the  delays  incident  thereto  would  probably  make  the  proposition 
infeasible  at  the  present  time  at  least  for  Exposition  purposes.  In 
order  to  save  one  block  in  tunnel  length,  from  five  to  ten  blocks 
of  main  and  lateral  streets  would  have  to  be  regraded,  if  any  rea- 
sonable traffic  grade  were  to  result.  The  limit  of  this  traffic  grade 
for  tunnel  approaches  I  have  placed  at  4%  maximum — better,  3% — 
and  most  of  these  regrades  require  prohibitive  cuts,  from  the  stand- 
point of  damage  to  present  abutting  property. 

Broadway  Tunnel  The  westerly  portal  of  the  Broadway  tun- 
nel should  be  located  at  Larkin  Street  rather  than  to  attempt  a 
location  at  Hyde  Street,  which  latter  exit  would  require  regrad- 
ing of  Broadway  and  the  lateral  streets  in  order  to  reduce  a  pro- 
hibitive grade  at  this  point.  Furthermore,  the  exit  at  Larkin  Street 
is  well  suited  for  a  connection  with  future  tracks  along  Larkin,  either 
with  those  now  occupied  by  the  Union  Street  line  or  with  future 
tracks  through  the  Van  Ness  valley,  connecting  with  the  Geary 
Street  or  other  lines. 

The  Broadway  tunnel  is  not  a  low-level  tunnel,  by  reason  of  the 
grades  encountered  on  the  easterly  slopes;  however,  it  can  be  con- 
sidered an  important  traffic  thoroughfare  to  Harbor  View  both  from 
Stockton  Street  and  The  Embarcadero,  supplementing  the  best  low- 
level  route,  viz.:  the  freight  and  traffic  tunnel  under  Fort  Mason. 
The  Broadway  route  entails  a  maximum  grade  of  6.3  per  cent  on 
the  east,  and  5.5  per  cent  on  the  west  slope  via  Broadway,  Polk, 
Vallejo,  and  Van  Ness,  and  is  therefore  available  for  the  majority 
of  the  lighter  vehicle  traffic.  Practically  nothing  can  be  accom- 
plished to  relieve  these  controlling  grades  except  by  prohibitive  re- 
grading. 

The  particular  section  desirable  for  the  Broadway  tunnel  de- 
pends upon  the  character  of  traffic.  For  a  high-level  tunnel,  it  is 
to  be  assumed  that  the  heavier  and  larger  vehicles  will  not  ordinarily 
use  the  tunnel  to  any  great  extent;  consequently,  a  narrower  road- 
way is  permissible  than  in  the  low-level  for  Fillmore  Street  bore. 
Owing  to  the  greater  width  of  Broadway,  it  would  seem  desirable 
to  use  the  entire  width  of  the  street  for  the  bore ;  which  is  one  of  the 
arguments  for  the  location  of  a  tunnel  through  Russian  Hill  in 
Broadway  rather  than  some  parallel  street.  A  60-ft.  single-bore 
arch  would  provide  a  24-ft.  center  roadway,  which  is  ample  fbr 
3-line  vehicle  traffic;  cars  and  sidewalks  would  be  located  along 
the  walls.  A  54-ft.  single-bore  arch  would  provide  a  20-ft.  center 
roadway,  which  is  ample  for  2-line  vehicle  traffic.    If  the  car  tracks 


f    r 


HARBOR  VIEW  TUNNELS 


223 


were  located  in  the  center  of  the  tunnel,  it  would  be  impracticable 
to  enclose  them  by  fences.  The  width  of  roadway  available  along 
the  sides  would  be  13^  ft.  for  the  60-ft.  bore,  and  11^  ft.  for 
the  54-ft.  bore.    Both  would  provide  for  single-line  traffic  only. 

The  Stockton  Street  bore,  as  projected,  is  only  50  ft.  wide,  which 
allows  only  8>^  ft.  roadway  on  either  side  of  the  car  line — just 
sufficient  for  moderately  large  vehicles. 

It  may  be  reasoned  that  the  same  arrangement  of  tracks  in  the 
Broadway  tunnel  should  be  utilized  as  in  the  Stockton  Street  tun- 
nel. However,  the  Stockton  Street  tunnel,  including  entrance 
grades,  is  1322  ft.  in  length  with  36-ft.  roadway,  while  the  Broadway 
tunnel  is  2338  ft.  in  length — not  far  from  double.  This  fact  makes 
it  desirable,  in  the  interests  of  rapid  transit,  to  separate  the  lines  of 
traffic  with  fences  as  in  the  Fillmore  Street  scheme,  and  provide  a 
roadway  in  the  center. 

Unit  Estimates.  The  following  estimates  for  the  various  types 
of  tunnels  have  been  submitted  by  the  City  Engineer,  as  suited  to 
prices  and  conditions  prevailing  in  San  Francisco.  In  this  com- 
parison, the  general  design  conforms  to  that  of  the  Stockton  Street 
tunnel,  giving  19  ft.  clear  from  street  to  arch,  inside. 

These  estimates  are  necessarily  liberal  and  include  percentage 
allowances  as  follows:  construction  profit,  15% ;  contingencies,  10%. 
These  are  based  on  the  following  unit  prices : 

Excavation,   heading    $  5.00  per  yard 

side-cut    3.00     "      " 

bench  2.00   ;;    ;; 

Concrete,  in  place   10.00 

Re-enforcing   steel,   in  place    70.00  "  ton 

Wages,  8-hour  shifts  $3.00  to    6.00  "  day 

Teams    6.50  "  day 

Single-bore  tunnel,  54  ft.  wide,  excluding  approaches.  .428.00  per  foot 

Double-bore  tunnel,  54  ft.  net,  excluding  approaches.  .464.00  '|^  "^ 

Approaches    70.00 

Two     individual     bores     on    different    streets,    each 

32-ft.    span    494.00  "  " 

Single-bore,  60  ft.  wide,  excluding  approaches  464.00 

Double-bore,  60  ft.  net,  excluding  approaches  496.00 

Approaches    80.00 

From  these  estimates  it  appears  that  the  double-bore  tunnel  will 
cost  somewhat  more  than  the  single-bore — about  9% — and  that  the 
cost  of  the  wider  single  bore  tunnel  is  7  to  8%  higher  than  the  nar- 
rower section. 

The  resulting  total  costs  on  this  basis  are  as  follows  (exclusive 
of  damages  and  enlargement  of  approaches).  They  are,  in  fact, 
higher  than  the  Stockton  Street  tunnel  estimates,  but  this  is  largely 
owing  to  the  great  length  of  the  tunnels  and  the  increased  difficulty 
of  prosecuting  the  work. 


224 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


ri 


ii 


Leng^th 

4332' 

3301' 

4332' 

4332' 


Single  Bore 

$1,685,800 
1,237,400 
1,673,400 
1,816.100 


Double  Bore 

$1,824,900 
1,338,600 
1,811,100 
1,938.600 


3294' 

3294' 
2338' 
2338' 


1,306,000  1,414,200 


1,417,100 
870,000 
944,700 


1,513,200 

941,100 

1,007,800 


Low  Level  ^o*"^ 

Fillmore — Sutter  to  Filbert 54' 

Steiner — Pine   to  Union 54' 

Divisadero — Pine  to  Lombard 54' 

Divisadero — Pine  to  Lombard 60' 

High  Level 

Divisadero — Sacramento    to    Green- 
wich    54' 

Divisadero — Sacramento  to  Green- 
wich     60' 

Broadway — Mason  to  Larkin 54' 

Broadway — Mason  to  Larkin 60' 

Cost  of  Other  Projects.  The  cost  of  any  other  proposed 
tunnels  for  this  district  may  be  arrived  at  with  approximately  the 
same  unit  costs  as  proposed  for  the  Fillmore  Street  tunnel — that 
is,  exclusive  of  damages  and  enlargement  of  approaches.  With 
respect  to  these  items,  the  Divisadero  Street  tunnel  will  carry  a 
somewhat  lighter  burden  in  damages ;  but  on  the  other  hand,  the 
increase  in  the  size  of  the  bore  that  would  be  desirable  tends  to 
offset  this. 

Damages.  I  have  not  attempted  to  make  any  estimate  of 
damages ;  however,  the  Fillmore  Street  Improvement  Association 
has  itself  prepared  an  estimate  covering  the  purchase  of  a  30-ft.  strip 
on  each  side  of  Fillmore,  from  Sutter  to  Bush,  and  Union  to 
Filbert.  This  estimate  has  been  itemized  for  the  various  owners 
and  covers  land  and  improvements,   as  follows: 

Land  value  and  damage,  south  end $  99,000 

Damage  to  improvements,  south  end 82,500 

Damage  to  land  and  improvements,  north  end....     85,000 

Total $266,500 

Assunmig  this  to  be  a  fair  estimate,  the  cost  of  the  Fillmore 
Street  tunnel  as  above  outlined,  would  approximate  in  round 
numbers,  $2,000,000  single-bore,  and  $2,100,000  double-bore. 

Progress.  It  is  estimated  by  the  City   Engineer  that  by 

vigorous  work  with  three  shifts  and  drifting  from  both  ends,  the 
headings  could  be  pushed  forward  at  the  rate  of  450  feet  per 
month,  total.  On  this  basis,  the  Fillmore  Street  bore  would  re- 
quire less  than  10  months  for  actual  construction  from  both  ends, 
or  20  months  if  from  the  north  end  only.  It  thus  appears  that, 
barring  extraordinary  delays,  the  Fillmore  Street  tunnel  ought  to 
be  completed  at  least  within  two  (2)  years  from  the  beginning  of 
construction.  This  would  provide  little  margin  before  the 
opening  of  the  Exposition  and  would  not  permit  of  its  use  for 
conveying  materials  to  the  grounds  during  construction  unless 
double  headings  were  employed.  Hence  it  is  imperative  that  the 
City  lose  as  little  time  as  possible  in  perfecting  its  plans  for 
vigorous  prosecution  of  the  work. 


CHAPTER  11 

MARKET  STREET  EXTENSION  TUNNEL 
UNDER  TWIN  PEAKS* 

Location  and  Alignment. 
Type  and  General  Design. 

At  the  present  time  there  is  an  area  of  10,000  acres,  or  about  one- 
third  of  the  cit\ft  south  and  west  of  Twin  Pea^s^  that  is  practically)  un- 
populated. Much  of  this  area  is  verp  desirable  for  residence  purposes,  but 
under  the  present  conditions  the  time  required  b^  existing  transit  lines  around 
Twin  Peaks  and  Blue  Mountain  is  practically  prohibitive.  These  same 
hills  cut  off  all  direct  communication  between  the  Mission  and  the  Park- 
In  this  chapter,  various  plans  for  relief  by  means  of  tunnels  are  analyzed, 
and  recommendations  are  made  for  the  location  and  general  design  of  {]) 
a  Twin  Peaks  rapid  transit  tunnel  and  (2)  a  Mission-Sunset  tunnel. 
Studies  also  had  to  be  made  for  the  general  design  of  a  subway  ultimately  to 
be  built  under  Market  Street  and  its  connections  with  the  Twin  Peaks 
project;  also  for  branch  connections  to  the  south  and  west.  This  Twin 
Peaks  tunnel  is  designed  to  serve  the  double  purpose  of  bringing  the  entire 
area  southwest  of  the  ridge  within  the  30-minu/e  time  zone  and  of  providing 
an  additional  outlet  for  rapid  transit  down  the  Peninsula. 

Projects  Investigated,  Original  and  Supplemental. 

Tunnel  Ptan  No.  1, 

Known  as  the  Schussler  plan,  running  from  Market  and  Castro  Streets, 
westward  on  Seventeenth  Street  to  a  point  just  west  of  Stanyan  Street,  thence 
southwesterly  and  south  approximately  midway  between  Blue  Mountain  and 
the  most  northerly  peak  of  Twin  Peaks  and  coming  to  the  surface  on  City 
property  near  the  Dewey  Boulevard. 

Tunnel  Plan  No.  2.    Subway  Plan  No.  1. 

Submitted  by  the  Twin  Peaks  Tunnel  Association,  following  closely  the 
alignment  of  Market  Street  at  low  level,  but  entirely  underground  from 
Valencia  Street  to  San  Miguel  Rancho  near  the  junction  of  Corbett  Road  and 
Dewey  Boulevard.  This  plan  includes  the  construction  of  the  southern  section 
of  Market  Street  subway  from  Castro  as  far  as  Valencia  Street. 

Tunnel  Plan  No.  3. 

A  high-level  tunnel  from  Market  Street  to  the  southern  extremity  of  the 
Alms  House  tract,  with  surface  entrance  at  Castro  Street  and  the  vicinity  of 
Laguna  Honda. 


Footnote — For   additional   tunnel   projects  in   other   parts  of  the  city,   see  Chapters   10 
and  12. 

•Formerly  Preliminary  Reports  Nos.  5  and  8,  submitted  May  3d.  and  Oct.  7th,  1912. 


•I  I 


I 


hi  * 


*  r 

I 


: 


226 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Tunnel  Plan  No.  3 A. 

The  same  as  Plan  No.  3,  except  utilizing  Market  Street  extension  to 
Douglass  Street. 

Tunnel  Plan  No.  4. 

Surface  entrance  at  Market  and  Castro  Streets,  emerging  in  the  San  Miguel 
Rancho  at  about  the  intersection  of  Taraval  Street  and  Dewey  Boulevard, 
with  a  sub-grade  passenger  and  car  transfer  station  in  Seventh  Avenue  Boule- 
vard east  of  Lake  Honda. 

Tunnel  Plan  No.  4 A. 

The  same  as  Plan  No.  4,  except  utilizing  Market  Street  extension  with 
surface  entrance  at  Eureka  Street. 

Tunnel  Plan  No.  S, 

Combining  Plans  No.  2  and  No.  4 ;  Market  Street  subway  from  Valencia  to 
Castro,  tunnel  to  the  San  Miguel  Rancho,  emerging  in  the  vicinity  of  Tara- 
val Street  and  Dewey  Boulevard  with  sub-grade  passenger  transfer  station  at 
Seventh  Avenue  Boulevard  east  of  Lake  Honda  and  surface  car  exits  at 
Castro  Street  and  Seventh  Avenue. 

Tunnel  Plan  No.  SA. 

Same  as  Plan  No.  5,  except  with  straight  extension  of  Market  Street  lo 
Douglass  Street. 

Tunnel  Plan  No.  SB. 

Same  as  Plan  No.  5  with  curved  extension  of  Market  Street  to  Eureka 
Street,  following  the  natural  contours  around  the  northern  slopes  of  Eureka 
Valley. 

MiMMion- Sunset  Tunnel. 

From  Market  and  Noe  Streets,  through  an  open  cut  on  Sixteenth  Street, 
thence  by  tunnel  to  the  intersection  of  Carl  Street  and  Cole  Street,  with  the 
portal  located  approximately  midway  between  Cole  Street  and  Clayton  Street. 

Subway  Plan  No.  2. 

This  is  a  plan  of  subway  on  Market  Street,  extending  from  the  Ferry  to 
Gough  Street,  thence  westerly  in  Haight  Street  to  Stanyan  Street,  thence 
northerly  in  Stanyan  Street  to  Fulton  Street,  thence  northwesterly  to  a  portal 
near  North  Willard  Street,  thence  on  the  surface  via  Cabnllo  Street  to  the 

ocean. 

It  is  also  proposed  that  branches  of  this  system  be  constructed  as  follows : 
From  the  intersection  of  Market  and  Haight  Streets,  thence  northerly  on 
Gough  Street  to  Lafayette  Park,  thence  diagonally  northwesterly  under 
Lafayette  Park  to  Laguna  Street,  thence  northerly  on  Laguna  Street  to 
Chestnut  Street,  or  on  some  other  parallel  streets  to  be  hereafter  selected, 
making  a  rapid  transit  entrance  to  the  Exposition  site;  also  another  from  the 
intersection  of  Stanyan  and  Haight  Streets,  in  a  southwesterly  direction  and 
on  some  streets  to  be  selected. 

Subway  Plan  No.  3. 

Four-track  subway  for  surface  car  operation,  extending  from  the  Ferry 
under  Market  Street  and  coming  to  the  surface  near  Brady  Street,  with 
inclined  entrances  for  the  reception  of  surface  cars,  on  Hayes  Street,  McAl- 
lister Street,  Turk  Street,  Eddy  Street,  Geary  Street,  and  Sutter  Street,  with 
a  loop  terminal  at  the  Ferry  building. 

Plans  chiefly  considered. 

No.  2 — "Twin  Peaks  Rapid  Transit  tunnel  zcithout  Seventh  Avenue  con- 
nection." ^  ,     ^ 

No.  5B— "Twin  Peaks  Rapid  Transit  tunnel  with  Seventh  Avenue  con- 
nection." 


TWIN  PEAKS  TUNNEL 


CONCLUSIONS  AND  RECOMMENDATIONS. 


227 


L  A  low-level  trolley  bore  from  Market  Street  to  the  San 
Miguel  tract,  with  a  maximum  tunnel  or  approach  grade  of  not 
over  3%  is  recommended,  the  alignment  to  be  as  direct  as  possible 
and  practically  constituting  an  extension  of  Market  Street  into  the 
Merced  district.     (Embodied  in  Tunnel  Plan  No.  2.) 

2.  Provision  for  a  Market  Street  subway  should  be  incor- 
porated in  any  Twin  Peaks  tunnel  project — i.  e.,  the  alignment  and 
grade  of  the  tunnel  under  the  hill  should  be  such  as  to  emerge  di- 
rectly into  a  suitable  subway  bore  under  Market  Street,  zvhether 
the  latter  is  built  now  or  in  the  future.  If  the  cost  is  too  great  at 
present  for  a  subway  section,  the  Twin  Peaks  tunnel  should  be 
built  to  sub-grade,  with  inclined  portal  at  the  south  end  of  Market 
Street,  so  that  cars  may  reach  the  surface,  and  in  the  future  the 
tunnel  sub-grade  can  be  extended  north  into  the  subway  proper. 
(Eliminates  Plans  No.  1,  No.  3,  No.  3A,  No.  4,  No.  4A.) 

3.  If  the  assessment  burden  is  not  too  heavy  at  this  time,  I 
am  in  favor  of  the  use  of  Valencia  Street  as  the  present  northern 
terminus  of  this  tunnel-subway  project  as  contemplated  in  Plan 
No.  2.  Only  by  this  means  can  open  competition  be  assured  for 
the  main  tunnel  bore.  Otherwise,  four  tracks  in  Market  Street 
would  be  necessary. 

4.  In  the  event  of  the  extension  of  the  subway  to  the  Ferry, 
the  entire  subway  bore  will  be  available  for  both  third-rail  inter- 
urbans  and  subwav  locals,  the  suburbans  being  routed  out  of  the 
bore  at  Castro  or  Valencia  Street,  and  the  subway  locals  returning 
via  under-ground  loop  at  Castro  Street. 

5.  To  meet  future  rapid  transit  necessities,  additional  tracks 
for  throug-b  express  service  exclusively  should  be  provided  for,  in 
the  acquisition  of  property  rigrhts  for  the  tunnel  now  under  consid- 
eration. For  this  purpose,  the  most  direct  alignment  and  lowest 
grade  obtainable  are  desirable.  This  need  not  necessarily  coincide 
with  the  one  chosen  to  meet  present  necessities. 

6.  Alternative,  The  extension  of  Seventh  Avenue  south  of  the 
Park  by  Laguna  Honda  and  the  City  tract  are  of  strategic  import- 
ance and  even  at  the  expense  of  a  somewhat  greater  tunnel  grade 
and  a  less  perfect  alignment,  a  subway  transfer  station  for  passengers 
and  cars  at  this  point  seems  essential.  (Plan  No.  5B.)  The  ap- 
pended discussion  gives  you  a  measure  of  these  disadvantages, 
neither  of  which  in  my  opinion  is  at  all  serious.  This  plan  would 
subdivide  a  tunnel  16,000  feet  in  length  from  portal  to  portal  into 
three  parts,  with  surface  entrances  not  over  8,900  feet  apart. 


If' 

i  t 


i 


228 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


if-  ■ 


7.  The  direct  extension  of  the  Market  Street  alignment  from 
Castro  to  Douglass  Street  is  quite  impracticable,  as  it  seriously  dis- 
turbs the  present  gradients  in  this  region  and  by  shortening  the  main 
tunnel  grade  between  stations  at  Market  Street  and  Lake  Honda 
will  actually  increase  (rather  than  decrease)  this  grade  beyond  the 
3%  maximum  established.     (Eliminates  Plans  Nos.  5  and  5A.) 

8.  The  curved  extension  plan  No.  5B,  herewith  submitted, 
could  be  carried  out  to  advantage  as  an  independent  street  im- 
provement, coincidental  with  the  tunnel  construction  at  sub-grade, 
although  not  essential  thereto,  as  the  subgrade  bore  is  necessary  in 
any  event.  The  only  gain  so  far  as  the  Twin  Peaks  tunnel  is  con- 
cerned would  be  to  eliminate  damages  and  facilitate  construction 
by  the  open  cut  method.  This  contour  approach  will  be  of  maximum 
benefit  as  an  outlet  for  the  "Mission-Sunset"  tunnel,  proposed  here- 
in, and  the  cost  of  the  extension  should  be  considered  as  partly 
borne  by  the  saving  in  the  length  of  the  Mission-Sunset  bore. 

9.  If  the  Twin  Peaks  tunnel  is  located  according  to  Plan  No. 
5B — i.  e.,  following  a  curved  extension  of  Market  Street  at  sub- 
srrade — the  Mission-Sunset  tunnel  should  extend  from  the  surface 
of  Market  at  Eureka  Street  to  Frederick  and  Cole  Streets  in  Pope 
Valley,  with  a  transfer  station  at  Eureka  Street  to  enable  passen- 
gers to  reach  Golden  Gate  Park  from  either  direction.  This  tunnel 
should  be  of  a  type  providing  for  street  car,  vehicle,  and  pedestrian 
traffic,  as  already  laid  out  for  the  Fillmore  Street  or  Broadway  tun- 
nels. It  should  be  considered  as  an  important  feeder  to  the  Twin 
Peaks  bore  from  the  Panhandle  district,  to  he  constructed  as  soon 
thereafter  as  praeticable.  If  Market  Street  is  not  extended  as  con- 
templated in  Plan  No.  5B,  the  Mission-Sunset  tunnel  must  then  be 
lengthened  over  27%,  with  an  easterly  portal  at  Sixteenth  and 
Market  Streets,  in  all  probability;  this,  however,  being  dependent 
to  some  extent  upon  future  plans  for  surface  line  extensions. 

10.  Finally,  I  can  recommend  unqualifiedly  the  construction  of 
a  Twin  Peaks  Rapid  Transit  tunnel  at  the  earliest  possible  date. 
In  so  doing,  there  will  be  brought  within  30  minutes'  running  time 
of  the  business  district,  approximately  10.000  acres  of  new  territory. 
75%  of  which  is  suitable  for  residence  land,  that  has  been  practic- 
ally useless  heretofore  by  reason  of  lack  of  adequate  transportation 
thereto. 

This  area  extends  west  to  the  ocean  front  and  south  along  the 
valley  as  far  as  the  cemeteries.  This  estimate  is  based  upon  present 
operating  schedules.  But  with  higher  speed  equipment,  even  this 
is  capable  of  great  improvement  and  it  is  quite  possible  that  the 
valley  lands  could  be  brought  within  the  30-minute  zone  at  least 
half  way  to  San  Mateo. 


I:' 


TWIN  PEAKS  TUNNEL 


229 


GENERAL  DISCUSSION 

Objects  in  View.  In  considering  these  various  tunnel 
enterprises  under  Twin  Peaks,  it  has  been  the  general  object  to 
provide  a  low-grade  outlet  from  Market  Street  into  the  San 
Miguel  Rancho,  for  the  purpose  of — 

(a)  Giving  direct  access  into  the  business  district  via  Market 
and  Mission  Streets  for  suburban  surface  cars  from  the  lower 
Sunset  District,  San  Miguel,  Ingleside,  Merced,  and  Ocean  View 
— i.  e.,  extending  the  suburban  commuter  area  well  beyond  the 
County  line  into  the  peninsular  valley  lands. 

(b)  Providing  a  more  direct  and  convenient  rapid  transit  en- 
trance to  the  city  from  down  the  Peninsula  than  is  at  present 
afforded  by  the  Mission  Street  thoroughfare. 

In  analyzing  the  movements  of  the  commuter  population,  it  is 
generally  found  that  the  criterion  by  which  one  suburban  district 
is  judged  as  against  another,  rests  entirely  upon  the  question  of 
time  consumed  in  transit  and  in  the  convenience  and  attractive- 
ness of  the  route.  Roughly  speaking,  30  minutes  represents  the 
limit  set  by  the  average  suburbanite  in  his  choice  of  location. 
Frequently,  geographical  conditions  conspire  to  render  a  longer 
trip  necessary,  but  often  the  attractiveness  of  the  trip  operates 
largely  in  extenuation  of  the  longer  ride;  such  is  the  case  with 
the  trans-bay  commuters. 

The  extraordinary  development  across  the  Bay  is  a  sufficient 
object  lesson  in  the  possibilities  of  development  by  limited-stop 
rapid  transit  trains. 

Vehicle  Traffic.  It  has  been  contended  that  a  double-bore 
tunnel,  suitable  for  both  rapid  transit  and  vehicle  traffic,  should 
be  provided ;  but  owing  to  the  extreme  length  of  the  tunnel,  th^ 
latter  has  been  practically  abandoned,  and  the  various  projects 
are  here  analyzed  on  the  bases  above  enumerated. 

High-Level  vs.  Low-Level.  In  studying  these  various 
propositions,  certain  important  features  command  instant  atten- 
tion ;  first  and  foremost,  the  grade.  If  it  is  the  desire  of  the 
City  to  extend  south  along  the  Peninsula  through  the  agency  of 
high-speed  electric  train  service,  a  rapid  transit  entrance  into  the 
city  from  the  south  must  be  provided.  For  this  reason,  steep 
grades  in  tunnel  or  approaches  and  obstructed  and  circuitous 
routes  are  almost  out  of  the  question.  These  conditions  prac- 
tically dictate  a  low-level  location. 

Alignment.  Unquestionably,  the  general  desire  of  San 
Franciscans  is  for  a  direct  extension  on  the  Market  Street  align- 


It 

r 

^H ' 

,  1 

i 


i'l'l 


N^ 


230  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

ment  toward  Merced. t  With  grades  not  exceeding  3%,  the  loss 
of  time  occasioned  by  some  diversion  from  the  direct  alignment 
would  not  be  at  all  serious;  but  if  both  tunnels,  viz:  Twin  Peaks 
and  Mission-Sunset— are  desired,  and  the  construction  funds  there- 
for can  be  raised  by  the  property  benefited  thereby,  an  approxi- 
mate alignment  with  Market  Street  unquestionably  becomes  the 
more  desirable  from  an  operating  standpoint. 

Market  Street  Extension.  Collectively,  the  status  of  these 
various  projects  is  greatly  aflfected  by  the  attitude  of  the  City  in 
regard  to  the  extension  of  Market  Street  through  the  four  inter- 
vening blocks  to  Douglass  Street.  It  has  been  urged  that  with 
this  extension,  a  considerable  length  of  tunnel  would  be  saved 
and  with  it  the  necessity  of  running  underground  to  Valencia 
Street.  It  is  true  that,  were  this  improvement  already  carried  out, 
a  strong  argument  would  be  presented  for  a  surface  grade  en- 
trance at  Douglass.  However,  as  this  has  not  been  done,  the 
following  conditions  prevail : 

1.  The  cost  of  acquiring  property  to  extend  Market  Street  as 
above  indicated  is  considerable.  An  estimate,  which  was  made 
by  a  reliable  real  estate  firm  of  your  city,  shows  that  the  cost 
would  be  in  the  neighborhood  of  $525,000,  exclusive  of  the  cost 
of  land  and  damage  at  the  northwest  corner  of  Seventeenth  and 
Castro  Streets. 

2.  The  extension  of  Market  Street  in  this  manner  will  not 
permit  the  extension  of  Plans  Nos.  5  and  5A,  combining  a  sub-way 
entrance  on  the  north  and  a  sub-grade  entrance  at  Laguna  Honda, 
within  the  limitations  of  grade  established — 3%. 

3.  Eventually,  a  Market  Street  subway  will  become  a  neces- 
sity, and  it  will  then  become  equally  necessary  to  route  the  rapid 
transit  suburban  express  trains  from  the  Twin  Peaks  tunnel  into 
this  subway,  for  which  purpose  an  inclined  entrance  would  have 
to  be  provided  in  the  streets  from  surface  to  sub-grade  at  some 
point  along  Market  Street  or  else  by  a  diverging  grade  within  the 
tunnel  which  has  some  operating  disadvantages.  But  a  study  of 
the  Market  Street  profile  shows  that  an  incline  to  sub-grade  will 
be  difficult  to  provide  south  of  Church  Street,  owing  to  the 
street's  general  slope  in  the  same  direction  as  the  tunnel  grade, 

tFootnote— It  appears  to  be  on  this  score  that  the  otherwise  excf  l<^nt  P'*'i_i^''!!°^^^ 
by  an  engineer  of  your  city.  Mr.  Hermann  Schussler  was  not  widely  ffvo^ed-^.  e  on 
account  of  the  'diversion,  from  a  direct  alignment,  through  Blue  ^r""^^'";,^}^^  .n^^'^ 
IvW  feature  of  this  plan  however,  was  one  of  economy  and  expediency— accomplishing 
by  a%ingle  bore  he  object  of  two  tunnels  now  contemplated.  Furthermore,  the  alignment 
under  sJvenieenth  Street  was  chosen  to  confine  the  damages  to  one  large  property  holder 
whose  acqu^sce"nce  had  been  previously  secured,  thus  ^^oidrng  the  intermmab  e  delay^ 
usually  encountered  in  adjudicating  the  claims  of  numerous  small  property  holders  in  tfie 
acquisition  of  sub-surface  easements. 


TWIN  PEAKS  TUNNEL 


231 


and  to  the  short  distance  between  cross  streets  in  the  proposed 
extension  strip.  Thus,  electric  express  trains  would  be  forced 
to  run  along  the  surface  of  Market  Street  for  14,000  feet  before 
dipping  under-ground,  which  zvould  defeat  to  a  large  degree  the 
ends  of  rapid  transit  desired. 

4.  A  study  of  regrades  of  lateral  streets  necessary  to  carry 
out  the  extension  of  Market  Street  reveals  a  hopeless  disturbance 
of  the  already  steep  grades  in  the  Eureka  Valley.  On  a  compara- 
tively level  territory  these  regrades  could  be  accomplished  with- 
out difficulty,  but  with  existing  grades  of  5  to  8%,  it  is  impossible 
to  cut  through  a  diagonal  thoroughfare  120  feet  in  width  without 
practically  closing  some  of  the  streets  to  the  right  and  left.  This 
results  from  the  fact  that  the  blocks  of  realty  are  so  cut  up  into 
small  irregular  polygons  that  not  only  do  lateral  grades  become 
prohibitive,  but  the  efficient  utilization  of  the  remaining  areas 
is  to  a  large  degree  destroyed. 

5.  Further,  it  is  found  that  a  straight  extension  would  carry 
Market  Street  to  the  foothills  without  any  opportunity  of  connec- 
tion with  other  thoroughfares  providing  an  outlet  from  Eureka 
Valley  along  reasonable  grades  to  the  higher  levels.  Caselli 
Avenue,  beginning  at  the  southerly  extremity  of  the  extension,  is 
narrow  and  immediately  encounters  ascending  grades  prohibitive 
for  either  automobiles  or  street  cars.  Douglass  and  Eureka 
Streets  both  present  impossible  grades  to  the  south,  thus  leaving 
the  westerly  ascent  in  precisely  the  same  condition  as  at  the 
present  time. 

Contour  Extension,  A  contour  plan  of  extension,  how- 
ever, will  prove  far  more  practicable.  In  developing  the  alignment 
of  the  tunnel  sub-grade,  points  were  found  around  the  northerly 
slopes  of  Eureka  valley  where  the  sub-grade  could  be  located  20 
feet  below  the  surface.  This  alignment  was  found  to  approximate 
the  desired  route  to  Lagima  Honda  station  under  alternative  Plan 
No.  5B,  with  Seventh  Avenue  connection. 

This  immediately  suggested  the  proper  location  for  an  easy 
grade  extension  of  Market  wStreet  into  Eureka  valley.  Leaving  the 
present  intersection  of  Seventeenth  and  Castro  Streets,  the  Market 
Street  roadway  has  been  gradually  drawn  down  on  the  curve  to  the 
width  of  85  ft. — somewhat  in  excess  of  California  Street,  Divisa- 
dero  Street,  and  Broadway.  The  extension  reaches  Eureka  Street 
at  3%  average  grade  (the  same  as  the  subway),  and  may  be  carried 
still  further  up  the  hill  to  Eighteenth  Street  on  about  a  5%  grade  if 
desirable,  thence  reaching  by  Falcon  Avenue  the  present  secondary 
level  to  the  south  around  Twin  Peaks  and  to  the  north  over  Ash- 


r's 


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J' 


I?    ;i 


Pi 


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I 


! 


\'. 


Al 


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232 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


'-  '  >  '-"-^^ 


r'-'^o. 


_/acJ^ 


Otftti' 


<^<?/9. 


^^'^ 


FIGURE    52-EUREKA    \.\LLKV    l•K()^r    THE   SLOPES    ABOVE   CORBETT    ROAD. 

Showing  existing  physical  obstructions  to  the  straight  extension  of  Market 
Street  with  reference  to  the  proposed  locations  of  tunnels.  Caselli  Ave- 
nue in  the  middle  ground  has  no  practicable  outlet  except  Eighteenth 
Street  and   thence   to  the   existing  switch-back. 

bury  Heights.  For  this  extension,  60  feet  width  would  probably 
serve  the  purposes  in  view  and  least  disturb  existing  gradients. 
At  Eureka  Street,  it  is  proposed  to  locate  the  southern  portal  of  the 
Mission-Sunset  tunnel  to  Pope  Valley,  with  a  diagonal  portal  pass- 
ing under  Seventeenth  Street  and  Douglass— the  beginning  of  Cor- 
bett  Road.    The  plan  will  then  present  the  following  features : 

1.  A  3%  grade  from  Castro  to  the  portal  of  the  Mission-Sunset 
tunnel. 

2.  The  present  gradients  of  transverse  streets  lying  to  the 
south  of  the  extension  would  be  undisturbed.  Those  on  the  north 
would  be  somewhat  increased,  but  the  resulting  depths  of  the  lots 
would  be  such  as  to  permit  convenient  frontage  on  both  Market  and 
Seventeenth  Streets,  even  at  the  different  levels. 


TWIN  PEAKS  TUNNEL 


233 


FIGURE    53— CONTOUR    STUDY    OF   TUNNEL    ALIGNMENT 

Showing  possible  alignments  at  different  depths  below  the  street  sur- 
face for  Plan  5B.  Based  upon  established  grades  and  uniform  grading 
between  streets.  This  virtually  establishes  the  range  of  possible  con- 
struction except  with  extensive  regrading. 

3.  The  plots  of  realty  would  be  cut  up  into  nearly  rectangular 
areas  without  disturbance  of  present  corner  lots,  except  at  the  curve 
south  of  Castro. 

4.  A  subway  station  near  the  Eureka  Street  portal  would  pro- 
vide transfer  facilities  in  both  directions  between  the  subway  lines, 
Market  Street  and  Sunset  lines,  and  with  Eighteenth  Street  by 
a  walk  of  200  to  300  feet. 

5.  A  high-level  entrance  to  Market  Street  for  local  trolley 
cars  from  the  south. 

6.  A  3%  grade  extension  to  both  the  present  boulevard  levels 
around  Twin  Peaks — Corbett  Road  and  Falcon-Ashbury  Avenues 
— suitable  for  direct  car  line  connections  with  Market  Street.  How- 
ever, this  is  to  be  regarded  as  a  street  improvement  and  not  an  in- 
tegral part  of  the  tunnel  project. 

Tunnel  Grades.  In  Plan  No.  2,  without  Seventh  Avenue  con- 
nection, a  tunnel  grade  of  about  2%  has  been  secured.  While  the 
lowest  grade  is  desirable,  it  would  not  be  unreasonable  to  estab- 
lish a  higher  grade,  if  compensating  advantages  could  be  secured. 


INTENTIONAL  SECOND  EXPOSURE 


232 


SAN  FRANCISCO  TRANSF^ORTATION  FACILITIES 


TWIN  PEAKS  TUNNEL 


233 


|(,l      Iv- 


iri;IK\    \    M.l.l.N     lix<»\!     Mil,    -l.dl'l-     \r.o\l.    ((iKI!i:il     U<>.\1». 


SIiowiiiL!  1  xi-Mii'^  mIu'-ii'.'iI  I >i>^t nu'ti' Mi 


ir.iiLili!  V  \i«n-i<Mi  <i\  Miirkft 


Stftr:  will)  r>  i(  rciuT  n.  tin-  i>imj.iim'I  I(  n-.iti. .!!-  ..f  nuiiuU.  C';i^i-11i  .\\"r- 
inic  in  till'  iiiiddu-  «ir"iin(l  li.i-  n<.  i)r;irtical»lr  .'UtKt  rxocpt  |-'.ij^ht*.H'iitli 
Strcrt    ;m«l    tluiu-*'    tn    the      xi-'iii--    ~\vilrli  l):ul< 

bury  IIeiiLilil>.  l-'<»r  llii-  extension.  hO  U'ct  widtli  wniild  ])n»l)ably 
serve  the  purposes  in  view  ;in(l  lea<l  flistnrl)  existini^  jrradicnts. 
At  fuireka  Street,  it  is  proposed  to  locate  the  southern  ])ortal  of  the 
Missiun-Sun-et  tunnel  t.>  Pope  X'alley,  with  a  diai^^oual  portal  pass- 
injL,'-  under  Seventeenth  Street  and  I  )oui;iass — the  he.LiinniniL;-  of  Cor- 
helt   l\oad.      I'he  jilan  will  then  present  the  followini;  features: 

1.  A  y't  L;rade  fn.ni  Castro  to  the  portal  (tf  the  Mission-Sunset 
tunnel. 

2.  The  jiresent  L;radients  (»f  transverse  streets  lyiuL^  to  the 
south  of  the  exten>i(.n  woidd  !>e  undisturbed.  Those  on  the  north 
would  he  somewhat  increase*!,  hut  the  resultinjL^  dei)ths  of  the  lots 
would  he  such  a-  to  pirniil  convenient  frontaj^e  on  both  Market  and 
Seventeenth  Street s,  even  at  the  different  levels. 


i-iciKK  5.?    (oxioiK  srrnv  of   iixxki,  af.icxmkxt 

Slio\vin.ir  i)(._ssil)K>  ali,u;niiu-nts  at  dififerent  (leptli.o  hfinu    tlu-  -tr 
taec   tor    Plan    5Ii.      Based   upon    ostablishod    jrrades   and   uniform 
hctweon    >treets.      This    virtually   cstahlislio    tin-    ranj^^    of    jn^.sil 
struction  except  with  extensive  repradin^. 


eel  snr- 
irradini; 
)le    c«>n- 


3.  The  plots  of  realty  would  be  cut  up  into  nearlv  rcctaui^ular 
areas  witlKnit  disturbance  of  present  corner  lots,  excejn  at  the  curve 
south  of  C  astro. 

4.  A  subway  station  near  the  Eureka  Street  portal  would  pro- 
vide transfer  facilities  in  both  directions  between  the  subwav  lines. 
Market  Street  and  Sunset  lines,  and  with  Eighteenth  Street  by 
a  walk  of  200  to  300  feet. 

5.  A  hijj^h-level  entrance  to  Market  Street  for  local  trolley 
cars  from  the  south. 

6.  A  y/,  grade  extension  to  both  the  present  boulevard  levels 
around  Twin  Peaks—Corbett  Road  and  b'alcon-Ashbury  Avenues 
—suitable  for  direct  car  line  connections  with  Market  Street.  How- 
ever, this  is  to  be  regarded  as  a  street  impnrremeut  and  not  an  in- 
tegral part  of  the  tunnel  project. 

Tunnel  Grades,  in  Plan  \o.  2,  z^nthout  Seventh  Avenue  con- 
nection, a  tunnel  grade  of  about  2'/,  has  been  secured.  While  the 
lowest  grade  is  desirable,  it  would  not  be  unreasonable  to  estab- 
lish a  higher  grade,  if  compensating  advantages  could  be  secured. 


234  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


htl' 


TWIN  PEAKS  TUNNEL 


235 


perspective:  5ke:tcm 

OF    PROPOSED 

MARKET  STREET  EXTENSION 

CONTOUR     PLAN 


FIGURE  54.— PERSPECTIVE  SKETCH  OF  EUREKA  VALLEY. 

Showing  Market  Street  extension  and  relative  position  of  Eureka  Valley 
station  and  Mission-Sunset  tunnel.  Also  indicating  the  impossibility  of  ex- 
tending Market  Street  straight  across  Eureka  Valley  if  an  outlet  is  desired. 
This  secures  ea.sy  grade  for  both  tunnel  and  street. 


The  maximum  grade  permissible  in  a  long  tunnel  is  really  deter- 
mined by  the  loss  of  time  and  the  heating  capacity  of  the  motors. 
Assuming  the  present  standard  surface  car  equipment  to  be  used 
through  the  tunnel,  the  maximum  motor  temperature  that  would  be 
expected  for  continuous  operation  along  the  streets  could  safely  be 
placed  at  70  or  75  degrees  Centigrade.  Tests  on  the  Sutter  Street 
line,  which  is  perhaps  the  heaviest  line  in  the  city,  considering  both 
grades  and  passenger  traffic,  have  shown  that  the  continuous  tem- 
peratures average  around  65  degrees  Centigrade.  The  permissible 
extra  rise  in  temperature  and  extra  time  consumed  due  to  climbing 
the  tunnel  grade  at  full  speed  then  will  determine  that  grade.  And 
it  is  found  that,  allowing  as  low  as  5  degrees  extra  rise,  a  standard 
car  with  30  tons  total  load  could  climb  a  3%  grade  for  over  one 
hour,  or  a  4%  grade  for  nearly  one-half  hour.  This  shows  that  for 
a  tunnel  of  this  length  a  grade  of  3%  or  4%  is  not  serious.  How- 
ever, a  3%  grade  will  consume  0.47  minutes  and  a  4%  grade  1.07 
minutes  additional  running  time.  From  a  general  standpoint,  there- 
fore, a  3%  grade  could  readily  be  used,  but  in  my  judgment  this 
should  not  be  exceeded  at  any  point  in  an  alignment  designed  for 
rapid  transit  purposes. 

Portals.  The  contemplated  portal  of  Plan  No.  2,  in  McCoppin 
Street  (formerly  Hermann  Street)  can  be  accomplished  with  an 
easy  grade  incline  without  the  acquisition  of  property  and  with  the 
necessary  preservation  of  the  roadway  by  the  location  of  the 
portal  at  the  side  of  the  street  adjacent  to  a  large  block  of  prop- 
erty bounded  by  McCoppin,  Valencia,  Brady,  and  Mission,  ivhich 
is  contemplated  for  use  as  a  terminal  and  storage  ground. 

A  surface  entrance  portal  in  the  southwestern  edge  of  the 
Alms  House  tract  at  the  junction  of  Dewey  Boulevard  and 
Seventh  Avenue  extension  presents  the  difficulties  of  a  long  grade 
of  8%  at  the  southwest  approach,  which  is  practically  prohibitive. 
The  best  grade  obtainable  from  the  surface  at  Seventh  Avenue 
to  the  surface  at  Market  Street  extended  is  3.09%,  while  the  best 
grade  to  Market  Street  subway  level  is  3.26%.  This  practically 
eliminates  a  surface  portal  along  Seventh  Avenue  extension  boule- 
vard (Plan  No.  3). 

A  surface  entrance  portal  some  2000  feet  southwest  in  the 
San  Miguel  Valley  near  the  intersection  of  Taraval  ("T")  Street 
and  Dewey  Boulevard  appears  to  be  the  only  possibility  for  pre- 
serving an  easy  grade  through  the  main  tunnel  if  built  for  rapid 
transit  express  trains.  This  alignment  will  cross  a  deep  gully 
before  reaching  the  Sloat  Boulevard  intersection,  but  it  is  evi- 
dently desirable  and  already  contemplated  to  utilize  the  tunnel 


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236  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

excavation  for  filling  in  this  gully  throughout  its  length  to  create 
more  desirable  residential  property.  The  choice  of  the  exact 
location  is  merely  a  matter  of  minimizing  the  amount  of  fill  neces- 
sary to  provide  an  even  grade  to  Sloat  Boulevard. 

Seventh  Avenue  Extension.  Plan  No.  2,  while  possessing 
the  unquestioned  advantages  of  good  alignment  and  grade,  yet 
eliminates  for  all  time  the  possibility  of  a  passenger  or  branch  line 
entrance  from  Seventh  Avenue  extension  Boulevard  which  tra- 
verses a  large  area  next  to  the  Alms  House  tract  approximating 
the  400-500  foot  level. 

It  is  necessary  to  recall  here  that  Seventh  Avenue  is  the 
only  southerly  outlet  from  the  northeast  section  of  Sunset,  which  is 
now  the  most  heavily  settled  territory  south  of  the  Park.  It  is  a 
natural  defile  or  pass,  which  will  provide  an  excellent  grade  when 
the  roadway  is  regraded  past  Lake  Honda  as  already  contem- 
plated by  the  City.  It  is  therefore  not  unreasonable  to  expect 
that  ultimately  a  Seventh  Avenue  car  line  extension  will  be 
carried  around  Twin  Peaks  by  a  regraded  roadway,  communicat- 
ing with  Corbett  or  Falcon  Avenues,  and  thence  to  existing  car 
lines  of  Eureka  Valley  and  the  Mission. 

Laguna  Honda  Station.  By  thus  taking  advantage  of  the 
natural  contours  of  the  Honda  Valley,  it  is  possible  to  secure  the 
following  results: 

1  A  passenger  transfer  entrance  into  the  tunnel  at  "Laguna 
Honda"  station.  This  will  bring  the  future  residents  in  this 
Honda  Valley  within  reasonable  walking  distance  of  the  tunnel. 

2.  An  easy  grade  connecting  car  line  in  Seventh  Avenue. 

3.  A  grade  of  not  over  3%  in  the  main  tunnel  and  its  ap- 
proaches. 

•  The  advantages  of  such  a  car  line  connection  may  be  appreci- 
ated from  the  fact  that  with  a  line  across  the  Park,  Richmond,  the 
most  thickly  settled  of  the  northern  section  would  have  access  to 
this  rapid  transit  route  down  the  Peninsula.  A  more  direct  route 
from  the  Presidio  down  the  Peninsula  could  hardly  be  found. 

Market  Street  Bore.  In  planning  the  subway  section  of  this 
Twin  Peaks  bore,  it  is  essential  that  the  section  adopted  should 
be  such  as  to  conform  to  a  reasonable  design  of  future  subway  ex- 
tension down  Market  Street,  both  as  regards  alignment  and  grades. 
It  is  therefore  necessary  to  adopt  a  subway  bore  which  will  make  it 
possible  for  the  station  platforms  to  be  heated  at  the  mimmum  dts- 


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238  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

tance  from  the  street  surface;  there  are  three  possible  alternatives  in 
determining  the  method  of  junction  of  the  tunnel  and  subway  bore 
at  Market  and  Castro  Streets : 

1.  A  third-rail  bore  in  Market  Street  from  Eureka  or  Castro 
north,  of  minimum  height— 13  or  14  feet— just  sufficient  for  roof 
clearance  only;  to  receive  only  third-rail  mtemrhsin  and  subway 
cars,  all  surface  trolley  cars  being  routed  directly  from  the  trolley 
tunnel  to  the  surface  on  Market  Street  by  the  inclined  approach 
already  provided  for  in  Plans  No.  2  and  No.  5B. 

2.  Increase  the  height  of  the  bore  slightly  to  15  or  16  feet- 
just  sufficient  to  admit  trolley  cars— this  bore  to  merge  into  a 
14-foot  third-rail  bore  at  Valencia  Street  where  all  local  trolley 
cars  would  be  routed  out  of  the  bore. 

3.  To  extend  the  19-foot  trolley  bore  as  far  north  as  Valencia, 
there  routing  out  all  trolley  cars  and  merging  into  the  14>^-foot 
third-rail  bore  at  sub-grade. 

From  the  standpoint  of  long-distance  rapid  transit,  the  first 
alternative  is  undoubtedly  the  best,  but  would  necessitate  all  of  the 
suburban  trolley  cars  from  Parkside,  Ingleside,  and  Ocean  View, 
to  run  on  the  surface  of  Market  and  Mission  Streets  to  the  Ferry. 
This  would  not  be  a  serious  handicap  at  the  present  time,  as 
upper  Market  Street  is  not  now  congested,  the  grades  are  not 
serious  for  surface  cars,  and  suburban  traffic  most  logically 
belongs  on  the  surface  of  important  business  thoroughfares. 

The  second  alternative  would  make  it  possible  for  the  longer 
suburban  lines  also  to  route  underground  as  far  north  as  Va- 
lencia, although  increasing  the  cost  of  the  bore  somewhat. 

The  third  alternative  can  be  justified  only  on  the  assumption 
that  a  Market  Street  subway  extension  out  Valencia  is  out  of 
the  question  for  a  long  period  of  years.  And  the  depth  of  the 
station  platforms  is  so  great  as  to  almost  put  it  out  of  considera- 
tion. With  a  subway  bore  14>^  to  15  feet  high  it  would  be  possible 
to  locate  station  platforms  about  the  same  distance  below  the  street 
surface,  allowing  2>4  feet  above  the  water-proofing  for  paving 
and  utility  structures  desiring  to  cross  the  roof  arches. 

Traffic  Connections.  Whatever  the  type  and  alignment 
selected,  it  is  absolutely  essential  not  to  lose  sight  of  possible 
traffic  connections  with  existing  or  future  surface  lines.  As  I 
understand  it,  this  tunnel  is  to  be  open  to  use  by  any  railway 
desiring  an  entrance  into  the  city  upon  an  adequate  rental  basis; 
hence  it  will  be  necessary  for  the  City  to  have  complete  control 
of  its  tributary  lines  through  proper  location  of  the  tunnel  portals. 


TWIN  PEAKS  TUNNEL 


239 


Considering  the  northern  portal;  if  by  extending  Market 
Street,  the  tunnel  were  to  reach  the  surface  of  Eureka  Street  at 
grade,  there  would  eventually  he  no  possible  chance  for  an  inde- 
pendent entrance  except  by  the  granting  of  a  franchise  for  two 
more  tracks  on  Market  Street,  or  else  the  diversion  to  and  use  of 
Seventeenth  Street  into  Mission,  upon  which  grades  are  not 
favorable.  But  an  independent  interurban  line  could  make  its 
terminal  at  Valencia  Street  without  serious  inconvenience.  Sur- 
face lines  emerging  at  Mission  Street,  could  find  easy  outlet  to 
the  north  via  Franklin,  Van  Ness,  or  Polk  Street.  Under  charter 
rights  for  joint  operation,  connection  could  be  made  with  the 
Geary  Street  road  on  any  of  these  streets  or  to  the  Civic  Center. 
By  the  extension  of  Van  Ness  Avenue  to  Mission  Street,  which 
is  very  desirable  in  any  event  (as  Van  Ness  Avenue  is  now  a 
blind  street)  it  would  be  possible  to  route  directly  to  Harbor 
View  from  the  southern  territory. 

Further  details  of  the  relation  of  this  project  to  a  future  Market 
Street  subway  are  discussed  in  a  succeeding  chapter. 

Mission-Sunset  Tunnel 

A  project  secondary  only  in  importance  to  the  Twin  Peaks 
project  herein  discussed  has  been  advocated  at  various  times  for 
the  purpose  of  providing  a  more  convenient  outlet  to  Golden  Gate 
Park  and  the  upper  Sunset  from  the  Mission  and  all  the  territory 
south  of  Market  Street  including  Noe  and  Eureka  valleys.  It 
is  now  possible  to  reach  upper  Sunset  only  tlirough  the  narrow 
throat  between  Blue  Mountain  and  the  Park  and  by  only  two 
through  streets — Frederick  Street  and  Parnassus  Avenue,  Carl 
being  a  blind  street.  While  the  lines  running  east  and  west 
through  the  Panhandle  give  ample  opportunity  for  residents  north 
of  Market  Street  to  reach  the  Park  and  the  Beach  by  Lincoln 
Way  and  Fulton  Avenue,  the  residents  of  the  Mission  can  only 
secure  this  entrance  by  extremely  circuitous  routes,  any  of  which 
consume  too  much  time  for  the  distance  traversed,  viz. : 

Valencia — transfer  at  Haight  or  McAllister  Streets. 
Sixteenth    and    Mission — transfer    at    Haight   or    McAllister 
Streets. 

Eighteenth  and  Ashbury — transfer  at  Stanyan  Street. 

Locations  proposed  for  this  Mission-Sunset  tunnel  are  as  fol- 
lows : 

Sunset  Plan  No.  1— Sixteenth  and  Noe  Streets  to  Carl  and  Cole 
Streets. 


H 


240 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Sunset  Plan   No.  2 — Seventeenth  and  Castro  to  Frederick  and 
Cole  Streets. 

Sunset  Plan  No.  3  (Twin  Peaks  Plan  No.  5B)— Eureka  and  Mar- 
ket Street  contour  extension  to  Frederick  and  Cole  Streets. 

Sunset  Plan  No.  1  is  practically  an  extension  into  the  Sunset 
District  of  Sixteenth  Street,  the  most  important  transverse 
thoroughfare  through  the  ^lission.  At  this  point  a  subway 
station  was  contemplated  in  Market  Street  and  likewise  a  Divisa- 
dero  cross-town  line  via  Noe  Street. 

In  Sunset  Plan  No.  2,  the  tunnel  would  debouche  practically 
at  the  upper  end  of  the  present  Market  Street  and  more  con- 
venient to  the  Castro  and  Eighteenth  Streets  lines  with  also  a 
subway  station  at  this  point  in  all  probability.  This  entrance 
would  shorten  the  tunnel  by  about  320  feet. 

The  advantages  of  Plan  No.  3  with  an  eastern  portal  at  Eureka 
and  Market  Streets  (extension)  have  already  been  dwelt  upon  in 
the  discussion  of  the  Twin  Peaks  project  No.  5B.  This  tunnel  is 
about  1,000  feet  shorter  than  called  for  by  Plan  No.  1. 

In  my  judgment,  the  westerly  portal  should  be  located  in  the 
natural  depression  of  Cole  and  Frederick  Streets,  and  west-bound 
cars  through  the  tunnel  into  IMarket  Street  should  be  given  the 
preference  in  this  level  thoroughfare  rather  than  to  divert  the  tun- 
nel to  Cole  Street  which  is  a  blind  street,  ending  at  First  Avenue; 
for,  in  all  probability,  if  this  tunnel  were  built,  most  of  the  daily 
travel  will  be  routed  via  this  tunnel  and  Market  Street.  Eventually, 
the  widening  of  Frederick  Street  at  the  Park  entrance  by  the  exten- 
sion of  Lincoln  Way  to  Stanyan  may  become  necessary  to  alleviate 
this  narrow  throat  into  the  Sunset  District,  but  such  an  important 
undertaking  as  the  Mission-Sunset  tunnel,  in  my  judgment,  should 
have  the  right-of-way. 

Comparing  these  three  plans  it  is  found  that  the  Sixteenth  Street 
entrance  will  require  a  bore  4,720  feet  long  to  Frederick  Street,  or 
27%  more  than  the  third  plan,  3,720  feet ;  the  latter  plan  of  course 
is  only  feasible  in  the  event  of  the  extension  of  Market  Street  as 
proposed  in  Twin  Peaks  Plan  No.  SBi  With  the  Carl  Street  por- 
tal, Plan  No.  1  is  32%  longer  than  Plan  No.  3. 

In  this  tunnel  there  exists  an  urgent  necessity  for  vehicle  traffic, 
and  in  spite  of  its  length,  the  possibility  of  an  easy  haul  from  the 
Mission  to  the  Beach  with  grades  not  exceeding  3  or  4%  must  not 
be  overlooked. 

Details  of  type  of  bore  and  portal  locations  are  presented  in  the 
succeeding  pages. 


TWIN  PEAKS  TUNNEL 


241 


TYPE  AND  GENERAL  DESIGN 
Essential  Points  for  Consideration 

First.  Location  of  the  Market  Street  bore  within  the  limits  of 
the  present  roadway. 

Second.     Number  and  location  of  stations. 

Third.     Type  of  stations. 

Fourth.  Relation  of  the  present  tunnel  project  to  future  rapid 
transit  projects  which  must  necessarily  connect  thereto. 

Fifth.  The  best  arrangements  for  cross-town  transfer  connec- 
tions at  Laguna  Honda  station. 

These  are  discussed  from  two  entirely  diflFerent  viewpoints : 
Project  A.     Relates  to  that  type  of  structure  best  adapted  to 

present  needs : 
A-1.     Main  or  hill  section  of  Project  A— Eureka 

Street  to  southwest  portal. 
A-2.     Subway  section  of  Project  A,  from  Eureka 
Street  to  northeast  portal  at  Mission  Street. 

Relates  to  subsequent  rapid  transit  projects  indi- 
cating what  provision  must  be  made  in  the  first 
structures  for  the  probable  demands  of  the 
future  in  the  shape  of  additional  main  and  branch 
subway  connections. 

The  development  of  studies  for  the  latter.  Project  B,  that  may 
appear  somewhat  elaborate,  have  been  necessary  in  order  to  avoid 
serious  blunders  which  are  easily  made  in  planning  rapid  transit 
projects  due  to  under-estimation  of  future  growth.  The  history  of 
most  rapid  transit  projects,  brief  as  it  is,  has  shown  that  this  growth 
has  generally  been  under-estimated  rather  than  over-estimated. 
And  the  transit  developments  across  the  Bay  and  around  Los 
Angeles  ofifer  a  sufficient  testimony  to  the  possibilities  of  the  near 
future. 

General  Description  of  Project.  The  complete  project  as 
recommended  herein  conforms  in  general  to  that  described  in  the 
foregoing  section.  In  addition  to  the  assignment  of  stations  and  the 
general  design  of  structures,  the  following  modifications  have  been 
incorporated  (Plate  13)  : 

First,  the  supplementary  inclined  portal  near  Castro  Street  has 
been  removed  from  Market  Street  and  located  within  the  limits  of 


Project  B. 


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242 


SAN    FRANCISCO  TRANSPORTATION    FACILITIES 


the  triangular  plaza  just  west  of  Castro  Street  at  the  commencement 
of  the  Market  Street  contour  extension,  where  little  traffic  obstruc- 
tion will  occur. 

Second,  the  supplementary  entrance  portal  for  surface  cars  at 
Laguna  Honda  station  has  been  modified  so  as  to  provide  a  through 
crossing  for  a  future  Seventh  Avenue  cross-town  line,  with  transfer 
connections  to  the  tunnel  station. 

Third,  Laguna  Honda  station  has  been  located  on  City  property, 
so  as  to  constitute  an  attractive  transit  center  at  the  bend  in  Dewey 
Boulevard  capable  of  effective  future  development,  in  connection 
with  a  Seventh  Avenue  boulevard  extension  to  Corbett  Road  and 
down  the  Peninsula. 

Fourth,  a  future  diversion  of  the  right-of-way  south  of  the  San 
Miguel  portal  is  recommended  to  secure  the  necessary  grade  separa- 
tion through  the  Ingleside  District. 

CONCLUSIONS  AND  RECOMMENDATIONS 

1.  Concerning  Project  A,  main  or  hill  section,  later  studies 
have  confirmed  the  previous  recommendation,  that  if  it  is  deter- 
mined to  build  at  present  only  the  main  portion  of  the  tunnel  between 
the  southwest  portal  and  Eureka  Street,  the  northeast  end  of  the 
tunnel  should  be  built  with  the  object  of  connecting  at  sub-grade 
with  a  future  Market  Street  subway,  and  not  connecting  directly 
with  the  surface  grade.  An  inclined  entrance  would  then  become 
necessary  at  Eureka  Street  which  could  be  ultimately  abandoned, 
or  utilized  for  routing  trolley  cars  to  the  surface  at  this  point. 

2.  Whether  the  tunnel  is  extended  down  Market  Street  at  the 
present  time  or  not,  I  am  convinced  that  the  contour  extension  of 
Market  Street  should  be  carried  out  at  once  while  the  property  is 
relatively  inexpensive. 

3.  This  contemplates  also  the  construction  of  the  contour 
Boulevard  around  Twin  Peaks,  as  advocated  by  the  various  Im- 
provement Associations.  This  low-grade  extension  of  Market  Street 
will  form  the  much  needed  traffic  thoroughfare  down  the  Peninsula, 
supplementing  the  rapid  transit  tunnel. 

4.  Concerning  the  second  section  of  Project  A,  this  should  be 
built  as  a  two-track  subway  from  West  Mission  Street  to  Castro 
Street  along  the  north  side  of  Market  Street  at  high-level;  that  is, 
with  station  platforms  as  close  to  the  street  surface  as  the  structural 
design  will  permit.  In  this  manner,  a  future  parallel  bore  will  be 
provided  for  at  minimum  cost,  to  be  built  at  sub-level  (that  is,  at  a 
depth  sufficient  for  an  overhead  concourse).    Thence  it  will  proceed 


TWIN  PEAKS  TUNNEL 


243 


directly  through  the  hill  at  low-grade  from  Castro  Street  to  the 
southern  portal. 

5.  Acquire  sufficient  easement  width  when  the  first  project  is 
carried  through  to  accommodate  both  present  and  future  bores,  as 
well  as  stations.  The  additional  cost  at  the  present  time  for  both 
bores  will  probably  be  but  little  more  than  for  the  first. 

6.  Considering  the  limitations  imposed  by  the  necessity  for 
reasonably  rapid  operation  through  the  tunnel,  not  more  than  three 
stations  between  the  north  and  south  portals  appear  to  be  desirable 
for  the  present : 

"Church  Street,"  located  in  the  valley  at  Fourteenth  and  Church 
Streets ;  side  platform,  sidewalk  entrance. 

"Eureka  Valley,"  located  along  Market  Street  contour  extension, 
between  Collingwood  and  Eureka  Streets;  island  platform, 
central  entrance  kiosk. 

"Laguna  Honda,"  located  on  City  property  at  the  intersection  of 
Seventh  Avenue  and  Dewey  Boulevard;  side  platform,  es- 
calator or  ramp  entrance. 

One  future  station,  "Noe  Street,"  has  been  provided  for  by 
raising  the  tunnel  grade  to  the  proper  level ;  but  this  should  be  built 
for  local  stops,  and  only  when  the  development  of  cross-town  traffic 

wai  rants. 

7.  Both  Market  Street  stations,  at  Church  Street  and  Eureka 
Valley,  should  be  built  at  high-level.  Church  Street  may  be  de- 
veloped later  into  a  sub-level  type  express  station  later  described, 
with  the  necessary  direct  transfer  facilities  between  express  and 
local  platforms. 

Eureka  Valley  station  may  be  expanded  into  a  reservoir  station 
as  soon  as  traffic  warrants,  so  as  to  provide  "passing  tracks"  for 
through  service  or  in  conjunction  with  the  branch-off  tracks  of  the 
proposed  Mission-Sunset  tunnel  connecting  at  Eureka  Street.  This 
will  be  independent  of  the  future  low-grade  bore  of  Project  B,  which 
will  pass  beneath  Eureka  Valley  station,  either  on  the  same  align- 
ment or  a  more  direct  one. 

8.  Laguna  Honda  station  should  be  constructed  at  the  highest 
level  consistent  with  the  maximum  grade  established — 3  per  cent — 
but  at  sufficient  depth  to  permit  a  future  overhead  crossing  beneath 
the  surface  of  Dewey  Boulevard  for  trolley  cars  of  connecting 
transfer  lines,  this  super-grade  crossing  to  be  developed  as  soon 
as  traffic  conditions  warrant,  but  independent  of  the  present  tunnel 

station. 

Lagima  Honda  station  has  been  located  largely  on  City  property, 
and  an  unusual  opportunity  exists  for  effective  utilization  and  en- 
hancement in  value  of  the  entire  City  tract.  The  improvement  of 


r 


244  SAN    FRANCISCO  TRANSPORTATION   FACILITIES 

this  locality  and  the  boulevards  leading  thereto  should  therefore  be 
undertaken  by  the  City  at  its  earliest  opportunity.  An  open  cut 
crossing  for  trolley  cars  will  save  much  of  the  expense  of  a  covered 
sub-grade  station  such  as  shown  herein. 

9.  The  upper  Market  Street  subway  section  should  be  designed 
so  as  to  connect  directly  at  subway  grade  with  a  future  four-track 
section  extending  down  lower  Market  Street.  All  subway  branch- 
off  lines  should  be  designed  mthoiit  grade  crossings.  Present  de- 
signs must  fit  into  a  proper  scheme  of  future  development  without 
necessitating  expensive  reconstruction,  particularly  with  reference 
to  station  structures. 

10.  The  lower  Market  Street  subway  section,  which  will  become 
necessary  in  the  future,  should  be  built  with  a  standard  four-track 
section,  with  all  four  tracks  built  at  sub-level,  permitting  an  over- 
head concourse  from  sidewalk  to  sidewalk  beneath  the  street  from 
which  access  may  be  had  to  both  express  and  local  platforms,  with 
direct  transfer  between  them.  This  section  is  well  adapted  for 
connection  with  the  upper  Market  Street  section  of  Project  A,  as 
herein  recommended.  It  is  idle  to  consider  a  two-track  section, 
because  of  the  number  of  branches  that  will  probably  be  required. 

11.  In  the  location  of  stations,  provision  should  be  made  for 
ultimately  extending  the  platform  to  accommodate  the  longest 
multiple-unit  train  contemplated.  For  the  present,  both  high-speed 
interurban  and  trolley  suburban  cars  will  be  operated  through  the 
tunnel.  This  dissimilarity  in  equipment  makes  it  desirable  for  these 
two  types  to  berth  at  separate  platforms;  consequently,  stations  not 
less  than  350  feet  in  length  should  be  provided  for  at  present,  accom- 
modating three-car  interurban  trains  and  three  trolley  car  units. 
On  account  of  this  length  of  platform,  and  the  serious  loss  in  speed 
due  to  additional  stops,  stations  should  not  be  built  closer  than  1500 
or  2000  feet. 

12.  An  inclined  exit  at  Castro  Street  will  be  required,  so  long 
as  both  local  and  express  trains  are  operated  through  the  hill  tunnel, 
to  relieve  the  Market  Street  subway  section  of  such  locals  as  do  not 
require  a  through  run.  The  incline  utilizes  otherwise  waste  space 
west  of  Castro  Street  in  order  to  obviate  an  obstruction  in  upper 
Market  Street. 

13.  Enlargement  of  the  present  two-track  project  to  four  tracks 
must  come  when  the  safe  minimum  headway  has  been  reached, 
under  conditions  of  minimum  safety  factor  as  determined  by  rigidly 
applied  rules  for  the  style  of  equipment  and  the  type  of  signal 
system  installed. 

14.  The  relative  volume  or  headway  of  express  and  local  traffic 
that  can  be  accommodated  effectively  within  the  one  bore  should 


I 


TWIN  PEAKS  TUNNEL 


245 


be  largely  determined  by  the  necessities  of  express  service.     This 
is  the  principal  object  of  the  rapid  transit  project. 

15.  Before  traffic  necessitates  a  second  or  express  bore,  it  is 
likely  that  local  suburban  service  can  best  be  handled  in  the  present 
bore  by  special  subway  equipment  running  between  the  City  and  the 
County  Line,  with  adequate  transfer  facilities  en  route  to  numerous 
trolley  feeder  lines.  And  as  a  lower  Market  Street  subway  will 
probably  also  be  required  by  this  time,  it  will  then  become  desirable 
to  exclude  all  but  standard  subway  equipment  from  the  rapid  transit 
system. 

16.  When  the  ultimate  Market  Street  subway  project  is  com- 
pleted from  the  Ferry  to  Eureka  Valley,  a  Market  Street  local  or 
transfer  route  will  become  desirable.  For  this  purpose  provision  has 
been  made  at  Castro  Street  for  subway  locals  to  loop  around  in 
Eureka  Valley  close  enough  to  Eighteenth  Street  to  warrant  a  loop 
terminal  station  for  originating  or  transfer  traffic  in  addition  to  the 
main  Eureka  Valley  station  herein  provided  for. 

17.  Branch  subways  will  unquestionably  become  necessary  in 
the  future,  to  feed  the  main  Market  Street  artery.  These  branches 
will  be  discussed  in  more  detail  later,  but  the  development  of  the 
city  seems  to  indicate  the  following  as  most  desirable : 

(1)  South,  or  Mission  branch; 

(2)  West,  or  Park-Richmond  branch; 

(3)  Southwest,  or  Park-Sunset  branch. 

All  run  beneath  the  surface  until  out  of  the  heavily  settled  districts. 

18.  Grade  separation  will  ultimately  become  necessary  below  the 
southwest  portal.  The  present  right-of-way  contemplated  along 
Junipero  Serra  Boulevard  can  only  be  regarded  as  a  makeshift,  and 
ultimately  the  rapid  transit  line  should  be  diverted  one  block  east 
by  open  cut  or  sunken  roadway.  It  is  extremely  important  that 
subdivision  of  residential  properties  should  be  carried  out  with  this 

in  mind. 

19.  Ventilation  and  automatic  block  signal  plants  will  become 
more  and  more  necessary  as  traffic  through  the  tunnel  increases. 
Provision  for  the  former  should  be  made  in  the  original  design,  and 
some  form  of  block  signal  will  be  required  from  the  start,  to  be 
later  perfected  and   amplified   in   order  to   handle   effectively  the 

denser  traffic. 

20.  The  McCoppin  Street  portal  may  be  retained  after  the 
upper  and  lower  Market  Street  bores  have  been  connected,  as  a  most 
convenient  means  of  access  to  a  terminal  property  which  will  pre- 
sumably be  located  in  that  vicinity,  at  least  for  interurban  trains. 
But  the  exact  position  of  this  portal  will  be  dependent  considerably 
upon  the  location  of  this  terminal  property. 


V 


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246  SAN    FRANCISCO  TRANSPORTATION    FACILITIES 

GENERAL  DISCUSSION 

Determining  Factors  in  Location.  In  the  substitution  of 
the  contour  Plan  No.  5B,  for  the  direct  plan  of  alignment,  No.  2, 
the  controlling  feature  is  the  adherence  to  the  contours  outlining 
Eureka  Valley  in  order  to  obtain  as  low  a  grade  as  3  per  cent  from 
Castro  Street  to  the  Laguna  Honda  station.  As  the  hillside  slopes 
rapidly  at  this  point,  the  alignment  of  the  bore  and  also  that  of  the 
Market  Street  extension  depends  upon  the  following  quantities, 
which  likewise  apply  to  lower  Market  Street: 

1.  Depth  of  street  railway  tracks  and  substructures. 

2.  Intervening  depth  allowed  for  utilities  or  passageways. 

3.  Depth  of  tunnel  roof  structure. 

4.  Type  of  car — height  of  maximum  clearance  point  on  roof. 

5.  Minimum  permissible  clearance  overhead. 

6.  Desirable  depth  of  station  platforms  below  surface. 

In  this  alignment,  it  is  desirable,  first  to  reduce  the  reverse 
curve  beginning  at  Castro  Street  to  the  easiest  possible  curvature ; 
second,  to  locate  the  center  line  of  the  bore  as  far  south  as  possible, 
so  as  to  better  reach  the  Eureka  Valley  District.  However,  the 
steepness  of  the  slopes  renders  impossible  any  material  variation  in 
the  alignment,  so  that  the  final  determining  feature  is  the  permissi- 
ble depth  of  the  tunnel  roof  and  superstructures.  (See  Fig.  53.) 

On  account  of  the  numerous  opportunities  for  crossing  the  bore 
at  streets  located  between  stations  where  there  is  plenty  of  roof 
covering,  it  is  not  deemed  desirable  to  depress  the  bore  at  stations  to 
provide  for  possible  utilities,  which,  if  of  moderate  size,  can  be 
carried  across  the  tunnel  roof  between  beams  or  can  be  taken  care 
of  by  deflecting  siphons.  However,  if  overhead  concourse  or  pas- 
sageway were  necessary,  the  entire  bore  would  have  to  be  depressed 
about  eight  feet.  A  total  depth  of  four  to  five  feet  below  the  street 
surface  to  the  under  side  of  the  tunnel  roof  is  the  minimum  that 
may  be  considered,  including  surface  tracks,  six  to  eight-inch  pro- 
tecting cushion,  waterproofing  and  roof.  As  later  discussed,  the 
minimum  inside  height  of  the  bore  should  not  be  over  14^  to  15 
feet  from  the  rail-head,  which  brings  the  station  platforms  to  a  depth 
below  the  street  surface  of  14^  to  15  feet.  This  is  representative 
of  "high-level"  construction  referred  to  herein. 

Car  loading  must  take  place  if  possible  on  a  tangent  or  straight 
line.  This  practically  dictates  the  reverse  curve  shown  in  the  align- 
ment between  Castro  and  Douglass  Streets.  But  approach  curves  of 
very  long  radii  have  been  used  so  that  eflficient  operation  thereon 
will  not  be  interfered  with.     All  of  these  considerations  have  re- 


TWIN  PEAKS  TUNNEL 


247 


i 


FIGURE  56  —STANDARD  FOUR-TRACK  SUBWAY  SECTION. 
Depressed  for  mezzanine  concourse  crossing  between  sidewalk  entrances. 
Double  island  platforms. 


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If 


248 


SAN    FRANCISCO  TRANSPORTATION    FACILITIES 


suited  in  the  choice  of  the  contour  aHgninent  shown  in  the  accom- 
panying plan,  Plates  13  and  14,  and  in  turn  have  also  dictated  the 
exact  location  of  the  Market  Street  contour  extension  referred  to 
herein. 

Types  of  Construction.  The  simplest  construction  plan  would 
consist  in  a  two-track  bore  extending  from  the  southwest  portal  to 
Eureka  Street,  where  an  open  cut  incline  would  be  built  from  sub- 
grade  to  the  surface.  This  plan  would  be  followed  in  case  it  is 
decided  not  to  construct  the  upper  Market  Street  subway  section 
at  the  present  time ;  but  it  practically  requires  the  extension  of 
Market  Street  along  the  contour  plan.  The  inclined  entrance  could, 
of  course,  be  moved  northeast  as  far  as  Castro  Street,  without  ex- 
tending the  street,  but  the  cost  of  easements  and  damages  to  over- 
lying property  during  the  construction  of  a  shallow  flat-roofed 
bore  would  be  proportionately  so  great  as  to  make  it  desirable  to 
secure  the  extension  of  Market  Street  at  this  time. 

A  study  of  the  profile  of  Market  Street  shows  that  two  entirely 
different  types  of  construction  are  warranted  for  upper  and  lower 
Market  Street,  respectively,  which  fortunately  fits  well  into  the 
present  plan  of  locating  the  inner  portal  at  West  Mission  Street. 
Owing  to  the  rapidly  rising  ground  southwest  of  Valencia  Street, 
it  is  impossi-'flc  to  follozv  the  contour  of  the  surface,  as  in  the  case 
of  lower  Market  Street ;  consequently,  no  stations  are  permissible  be- 
tween Valencia  and  Church  streets. 

Considering,  now,  this  construction  on  both  upper  and  lower 
Market  Street,  there  are  four  types  of  subway  section  that  may  be 
seriously  considered: 

(a)  Standard  Four-Track  Unit.  A  flat-roofed,  two-bore 
section,  carried  at  sufficient  depth  below  the  street  surface  to  per- 
mit of  an  overhead  or  mezzanine  concourse  between  sidewalks,  thus 
providing  an  effective  transverse  passenger  subway  at  all  stations. 
This  type  will  permit  platforms  to  be  built  at  approximately  23 
feet  below  the  surface  (Fig.  56).  It  represents  standard  construction 
used  in  other  cities,  and  although  possessing  probably  the  minimum 
construction  cost,  it  has  the  disadvantage  that  platforms  of  both 
bores  are  depressed  eight  feet  on  account  of  the  mezzanine  gallery. 
This  passageway,  however,  may  be  necessary  for  lower  Market 
Street  in  the  future. 

(b)  Independent  High-Level  2-4  Track  Section.  Project 
A  covers  the  first  high-level  two-track  bore.  Project  B  has  two 
different  independent  single-track  bores  built  after  Project  A  at 
sub-level  to  permit  mezzanine  concourses.  (Fig.  57.)  This  type  has 
the  distinct  advantage  that  at  least  two  platforms  at  all  stations 


TWIN  PEAKS  TUNNEL 


249 


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FIGURE    57 —INDEPENDENT    SUB-LEVEL    SUBWAY    SECTION 

Two-track  Project  A  at  high  level;  future  Project  B,  in  two  independent 
tracks,  at  low  level.     Sub-concourse  with  transfer  facilities. 


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250 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


tmy  be  brought  8  feet  nearer  the  street  thdiU  in  the  previous  type. 
It  is  well  suited  to  upper  Market  Street,  but  would  entail  consider- 
able additional  cost  on  account  of  driving  independent  bores  and 
additional  material  required  for  walls. 

(c)  Four-Track  Sub-Level  Unit.  With  mezzanine  con- 
course to  sidewalk  entrances.  Same  as  previous  type,  except  that 
the  entire  construction  is  to  be  carried  out  as  one  project,  thus 
reducing  construction  cost  below  type  (b),  but  costing  about  the 
same  as  type  (a).  Here  the  saving  in  excavation  is  offset  to  a 
large  extent  by  greater  expense  for  division  walls,  depending  of 
course  upon  the  character  of  material  encountered.  This  section 
is  suitable  for  construction  on  either  upper  or  lower  Market  Street 
as  a  four-track  project. 

(d)  Independent  Sub-Level  2-4  Track  Type.  With  separate 
two-track  bores  constructed  at  different  times— Project  A,  high- 
level,  and  Project  B  at  sub-level— thus  permitting  a  mezza- 
nine concourse  to  the  sidewalk.  The  intervening  distance  avoids 
disturbance  of  Project  A  by  construction  work  on  Project  B.  This 
plan  is  distinctly  suitable  for  upper  Market  Street  under  the  pres- 
ent conditions,  and  is  recommended  herein.  For  lower  Market 
Street  the  standard  unit  section,  Type  (a)  is  recommended,  the 
advantages  of  the  mezzanine  concourse  outweighing  the  disadvan- 
tages of  deeper  station  platforms. 

It  is  probable  that  for  lower  Market  Street  a  two-track  bore 
need  not  be  taken  into  consideration,  for  when  the  time  comes  for 
construction  four  tracks  would  without  doubt  be  required,  by  rea- 
son of  the  necessity  of  merging  various  subway  branches  from 
Richmond,  Mission  and  Sunset  into  the  main  Market  Street  artery. 
This  is  only  of  interest  now  in  case  Market  Street  receives  these 
district  subway  branches.  And  if  each  branch  should  be  operated 
to  its  full  capacity,  a  diversion  of  one  or  more  to  a  parallel  street 
might  even  become  a  necessity. 

Station  Platform  Arrangements.  Two  arrangements  of 
platforms  with  their  modifications  are  here  available : 

(1)  *Tsland"  platform — located  between  inbound  and  out- 
bound tracks.  This  is  a  simple  form  for  a  two-track  bore,  but  is 
limited  in  capacity  because  of  the  intermingling  of  incoming  and 
outgoing  passengers.  However,  in  the  four-track  arrangement  it 
is  exceptionally  valuable  in  permitting  quick  transfers  across  the 
platform  between  express  and  local  tracks.  Fig.  56  shows  the 
"island"  platform  in  its  best  form,  and  Fig.  60  in  its  simplest 
form  as  designed  for  Eureka  Valley.  Fig.  59  shows  a  direct  trans- 
fer between  center  platforms,  with  one  flight  of  stairs  to  sub-level. 


TWIN  PEAKS  TUNNEL 


251 


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FIGURE   58— FOUR-TRACK   SUB-LEVEL  UNIT   SECTION. 
Center  local  tracks  at  high  level;   side  express  tracks  at  sub-level,  well 
suited  to  Market  Street. 


252 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


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FIGURE   59— INDEPENDENT   SUB-LEVEL  TWO-BORE   SECTION, 

Recommended  for  upper  Market  Street,  Church  Street  station.  Project  A, 
high-level;  future  Project  B  at  sub-level,  with  transfer  facilities.  Both 
projects  are  on  off-side  alignment. 


TWIN  PEAKS  TUNNEL 


253 


This  arrangement  is  ultimately  suited  for  upper  Market  Street  at 
Church  Street  station. 

(2)  Side  Platforms.— For  a  heavy  two-track  line,  this  is  supe- 
rior to  the  "island"  platform  in  capacity.  It  has  also  the  advan- 
tage that  in  the  future  it  can  be  readily  expanded  into  a  four-track 
island  reservoir  station,  permitting  passing  tracks  without  neces- 
sitating complete  reconstruction  of  the  station  except  the  excava- 
tion and  construction  necessary  for  the  outer  pair  of  tracks.  This 
will  be  the  case  at  Church  Street. 

But  usually  entrances  must  be  made  from  the  sidewalk,  as  only 
in  special  cases  is  it  permissible  to  use  island  kiosks  in  the  center 
of  the  street.  Fortunately,  Market  Street  is  of  suitable  width  for 
securing  sidewalk  entrances.  Fig  56  shows  the  sidewalk  kiosks 
leading  to  a  mezzanine  concourse  and  thence  to  the  depressed  island 
platform.  In  the  case  of  the  sub-level  type,  the  stairway  is  simply 
extended  to  the  lower  level,  as  in  Figs.  58  and  59.  Here  the  sub- 
level  platform  is  about  30  feet  below  the  level  of  the  street;  con- 
sequently, in  locations  of  extremely  heavy  traffic,  a  moving  stair- 
way or  escalator  will  be  desirable. 

It  is  becoming  the  practice  in  Eastern  cities,  where  sidewalks 
are  congested,  to  replace  sidewalk  kiosks  by  entrances  through 
stores  or  business  houses  located  on  abutting  property.  Generally 
office  buildings  and  department  stores  are  more  than  willing  to 
devote  necessary  space  for  this  purpose  in  order  to  secure  the  ad- 
vantage of  a  sub-level  entrance  in  the  building.  In  such  cases  the 
elevator  service  of  the  building  in  question  becomes  available  for 
the  entrance  to  the  tunnel. 

Eureka  Valley  Station.  After  numerous  studies  a  central 
island  platform  for  Eureka  Valley  station  was  finally  decided  upon. 
It  was  found  impossible  to  carry  the  present  bore  at  high  level 
along  the  north  side  of  the  street  and  in  this  position  secure  suf- 
ficient overhead  clearance  for  sidewalk  entrances  to  an  island  plat- 
form so  as  to  permit  future  expansion  of  the  project  into  a  four-track 
reservoir  station  with  island  platform,  without  widening  the  street 
or  acquiring  additional  property  beyond  the  90-foot  width  which 
has  been  determined  upon  for  Market  Street  extension  at  this 
point.  And  side  platforms  with  off-side  alignment  would  require 
four  entrances,  which  is  undesirable  and  more  expensive.  Simi- 
larly, it  was  impossible  to  provide  central  entrances  of  reasonable 
size  to  serve  this  off-side  alignment  of  the  present  bore,  owing  to 
the  limiting  roof  clearances. 

With  the  plan  shown  herein,  central  island  kiosks  in  the  middle 
of  the  street  may  be  used.  They  are  located  directly  behind  the 
inclined  portal  at  Castro  Street,  and  also  serve  as  safety  loading 


254 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


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FIGURE  60— EUREKA   VALLEY    STATION,   HIGH  LEVEL   PROJECT. 

Island  platform,  center  entrances,  in  Market  Street  contour  extension,  ^yith 
provision  for  future  reservoiring  to  four  tracks  to  accommodate  Mission- 
Sunset  traffic. 


TWIN  PEAKS  TUNNEL 


255 


stations  for  the  surface  trolley  lines  which  will  later  pass  on  either 
side  of  the  kiosks  into  the  proposed  Mission-Sunset  tunnel  or  by 
the  proposed  Market  Street  extension  further  up  into  Eureka  Val- 
ley. These  central  kiosks  lead  directly  to  a  central  island  platform 
of  the  type  previously  described. 

Either  of  these  "off-side"  subway  plans  would  require  exten- 
sive reconstruction  when  the  second  bore  was  put  through,  but  the 
central  alignment  permits  of  expansion  into  a  reservoir  station 
with  only  modification  of  platforms.  The  second  express  bore 
will  pass  beneath  at  low  grade.  And  it  is  deemed  unnecessary  to 
provide  for  transfer  facilities  between  the  present  bore  and  this 
future  express  bore,  for  the  reason  that  no  extensive  cross-town 
transfer  business  may  be  looked  for  in  this  vicinity  that  could  not 
as  readily  be  handled  at  the  Church  Street  station. 

After  much  study,  I  am  convinced  that  instead  of  providing 
small  stations  at  frequent  intervals,  it  is  better  to  establish  a  sta- 
tion of  ample  size  extending  between  streets  along  the  tangent 
which  will  ultimately  accommodate  a  train  of  six  to  eight  car  units. 
For  real  rapid  transit  these  stations  should  not  be  nearer  than 
1500  to  2000  feet,  especially  in  sections  of  lighter  traffic  density. 

Noe  Street  Station.  Owing  to  the  proximity  of  Eureka  Val- 
ley station,  another  station  has  not  been  provided  in  the  present 
plan  for  the  intersection  of  Noe  and  Sixteenth  Streets.  However, 
if  the  development  of  cross-town  traffic  warrants  the  establishment 
of  the  contemplated  Divisadero  Street  cross-town  line,  a  local  sub- 
way station  at  this  point  may  become  desirable.  And  such  a  sta- 
tion has  been  provided  for  in  the  present  plan  by  raising  the  tun- 
nel grade  close  enough  to  the  street  to  permit  of  a  high-level  sta- 
tion for  local  service  similar  to  that  of  Church  Street. 

Laguna  Honda  Station  has  been  purposely  located  upon  City 
property,  which  is  fortunately  situated  at  an  intersection  of  impor- 
tant  thoroughfares   and   which   may   be   developed   into   a   useful 
transit  center  for  the  upper  San  Miguel  tract.     In  fact,  this  par- 
ticular point  lends  itself  so  well  to  development  that  it  has  been 
chosen    for   a"  station   site   in   spite   of   its   elevation— considerably 
above  the  levels  in  the  vicinity  of  Lake  Honda.     And  the  strategic 
advantages  of  this  site  are  considered  to  so  greatly  outweigh  those 
of  the  lower  levels  further  west  in  Seventh  Avenue  that  final  choice 
has  rested  here,  even  though  a  motor-driven  escalator  may  have  to 
be  used  until  such  time  as  the  trolley  transfer  arrangements  herein 
proposed  can  be  carried  out.      (Fig.  61.)     Supplementing  the  esca- 
lator, however,  an  inclined  walkway  or  ramp  has  been  provided 
in  lieu  of  stairways  to  permit  comfortable  access  to  this  station 
from  the  west. 


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256 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


FIGURE  61  — LAGUNA  HONDA  STATION,  FIRST   STAGE. 
Arrangement  of  entrances  by  escalator  and  ramp  for  the  first  construction 
stage.    Second  stage  detailed  in  Plate  15. 


TWIN  PEAKS  TUNNEL 


257 


CAR    ST-ATIOM  A.mCM| 


lOt>4   or>4 


qig.fM-rgw  ui^it  OF-  -rt-iMiNici-  «-rArr*or~* 


FIGURE  62  -LAGUNA  HONDA  STATION,   SECOND  STAGE. 
Section  on  center  line  of  tunnel,  showing  superimposed  local  car  station 
of  second  construction  stage.    Direct  transfer  facilities. 


kOCAk  CAM    eTATION 


TUNNKU  aTATIOM 


m^^mm 


iir<4»   lO  ^T^ 


FIGURE  63 -LAGUNA  HONDA  STATION.   SECOND  STAGE. 
Section  on  center  line  of  local  car  station,  second  construction  stage,  show- 
ing direct  transfer  facilities. 


li 


258 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Should  the  City  determine  to  alter  the  grades  or  alignment  of 
Dewey  Boulevard  or  Seventh  Avenue  in  this  vicinity,  every  advan- 
tage should  be  taken  to  ease  the  approach  grades  and  to  decrease 
as  much  as  possible  the  necessary  depth  of  Lake  Honda  station  at 
this  point.  In  view  of  the  cost  of  hauling  all  future  trains  up  a 
grade  exceeding  three  per  cent,  as  compared  with  the  slight  dis- 
advantages of  an  escalator,  the  present  levels  have  been  determined 
upon  as  the  best  compromise  possible. 

Development  of  Seventh  Avenue  Extension.  The  design 
for  transfer  connection  at  Laguna  Honda  may  appear  far  more 
elaborate  than  the  present  condition  of  settlement  of  this  territory 
would  warrant.  For  this  reason  the  construction  has  been  sepa- 
rated into  two  projects — first,  the  station  necessary  for  serving 
the  tunnel  only,  and  second,  a  super-imposed  trolley  transfer  sta- 
tion running  beneath  Dewey  Boulevard  with  inclined  portals  reach- 
ing the  surface  on  both  sides,  this  second  project  to  be  built  as 
soon  as  the  development  of  this  territory  warrants.     (Plate  15.) 

It  is  not  too  early,  however,  for  the  City  to  consider  the  improve- 
ment of  roadways  iri  this  district,  which  must  be  based  upon  the 
prevailing  contours.  The  southern  end  of  Dewey  Boulevard  is 
manifestly  impracticable.  It  is,  however,  entirely  feasible  to  ex- 
tend Seventh  Avenue  over  the  existing  saddle  between  adjacent  hills 
to  Corbett  Road,  and  if  this  is  done  the  logical  plan  would  be  by 
means  of  an  open  cut  running  beneath  the  present  bend  in  Dewey 
Boulevard  in  a  southwesterly  direction.  In  this  event,  this  exten- 
sion would  take  the  place  of  the  trolley  station  which  has  been  de- 
signed as  the  second  part  of  the  Laguna  Honda  station.  With  the 
cross-town  service  through  this  open  cut,  excellent  transfer  facil- 
ities will  be  available  for  the  development  of  surrounding  territory. 

Rolling  Stock,  The  mistake  must  not  be  made  in  the  design 
of  a  project  of  this  magnitude  of  planning  today  for  too  small 
rolling  stock.  In  other  words,  the  tunnel  clearances  throughout 
must  be  ample  to  accommodate  the  largest  rolling  stoek  that  ivill 
probably  he  used.  It  is  true  that  for  the  first  few  years  smaller 
rolling  stock  will  be  operated  through  the  tunnel,  viz.,  trolley  cars 
nine  feet  wide  by  fifty  feet  long,  and  interurban  cars  possibly 
nine  feet  four  inches  wide  by  fifty-five  feet  in  length  and  thirteen 
feet  in  height.  But  ultimately  the  time  will  come  when  standard 
high-speed  multiple-unit  trains  will  be  in  demand,  which  equip- 
ment may  have  to  be  standardized  unth  that  of  the  Market  Street 
subways.  Therefore,  in  the  event  that  this  high-speed  equipment 
does  not  enter  upon  the  city  streets  but  remains  underground,  a 
much  larger  car  would  be  possible.  I  therefore  consider  it  neces- 
sary to  provide  tunnel  clearances  throughout  which  will  accommo- 


wATcn  »iiO0riM« 


KcruvK 

IMICMC 

cvcRxcorr 


UMITIN* 
THIRD   RAIU 
CkCARANCe 


SCCTION     roR 

WE>N>-OWCgO    CONC 


hm.-   a  ft. 


NOrrc.- 

ct-m.Mm.»j*cma  «c.Qui«eo 

ow  eoorr.  kacmus  o»i  oven. 

TMICKNE**  0»'  UNIN*  AMD 
AMA^C  OFIhtVKWT  DKPKNO* 
U^ON  TMC  CHA«ACTOfl-OF 
•MOUND   KNCOWItXTtRtO. 

FIGURE  64 -TYPICAL  ARCH  ROOF  SECTION  OF  RAPID  TRANSIT  TUNNEL. 
To  be  used  under  the  hill,  showing  maximum  outline  and  clearance  lines 
for  ran  d  "ransit  rolling  stock.     Thickness  of  linmg  and  shape  of  invert  de- 
pendent upon  the  character  of  ground  encountered-     Oearance  lines  shown 
are  required  on  tangents  and  curves  of  800  feet  radius  or  over. 


Rcruac 

ISICHC 

CVCRY  itorT. 


UMITINO 
THIRD    RAII_ 


AtLCTIOM 


wcirMF-Qwcr-P  cor>«cwgTc 


NOTC,- 

CUEARANCES      WCOUlBCO 

ON    TAN<SCr«tT&  ANO   CURVES 

or   800  FT.  RAOlUft   OR  OVER 


o 


•4- 


I    IN.-   ^FT. 


FIGURE   65  -TYPICAL   FLAT    ROOF    SECTION   OF    RAPID   TRANSIT    TUNNEL. 
Suited  to  Market  Street.     Clearances  shown  are  required  on  tangents  and 
curves  of  800  feet  radius  or  over. 


i 


260  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


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date  a  car  nine  and  a  half  feet  to  ten  feet  in  width,  sixty  to  seventy 
feet  in  length,  and  twelve  feet  in  height,  with  a  possibility  of 
eight-car  multiple  unit  trains  operated  during  rush  hours. 

These  clearances  demand  a  tunnel  bore  about  twenty-five  feet 
in  width,  and  the  minimum  height  has  already  been  defined  in 
Part  I  as  not  less  than  fourteen  and  a  half  feet.  In  the  single- 
arch  section  there  will,  of  course,  be  ample  head  room;  but  in  the 
shallow,  flat-roofed  section  the  overhead  clearances  will  be  minimum 
as  stated,  which  height  will  be  necessary  to  i>ermit  of  trolley  cars 
being  operated  through  the  tunnel  for  a  few  years  until  the  rapid 
transit  system  is  fully  developed.  Were  the  small  cars  alone  contem- 
plated, a  tunnel  section  twenty-two  feet  in  width  would  be  ample, 
but  if  a  tunnel  were  built  of  this  size,  there  would  be  no  hope  of  real 
rapid  transit  until  the  additional  low-grade,  two-track  tunnel  bore 
were  built.  It  is  therefore  real  economy  to  provide  notv  for  the 
larger  equipment.     (Figs.  64  and  65.) 

Car  Berths,  With  two  types  of  equipment  operated  within 
the  same  bore,  different  heights  of  i>latforms  will  be  encountered, 
also  different  body  and  step  clearances,  so  that  for  the  present,  two 
level  platforms  must  be  provided,  arranged  in  tandem,  one  to  serve 
rapid  transit  equipment  at  the  level  of  the  car  platform— approxi- 
mately 3'  6"  from  the  rail  head,  and  the  other  for  trolley  cars  at 
the  level  of  the  first  step— approximately  15  inches.  Rapid  transit 
trains  may  then  take  the  forward  berth,  and  local  cars,  the  rear 
berth,  or  vice  versa.  This  condition  necessitates  longer  platforms 
at  the  present  time  than  would  be  necessary  for  standardized  equip- 
ment, but  the  additional  length  will  be  equally  useful  when  the 
platform  is  given  over  wholly  to  standard  rapid  transit  equipment 
and  traffic  has  developed. 

Current  Collection,  Although  the  tunnel  bore  has  been  de- 
signed with  head  room  sufficient  at  all  points  to  permit  trolley 
collection  with  a  reasonable  height  of  car;  it  is  contemplated  that 
all  rapid  transit  rolling  stock  shall  eventually  be  equipped  for 
third  rail  collection.  This  applies  not  only  to  strictly  subway 
equipment,  but  also  to  long  distance  interurban  trains  and  pos- 
sibly also  to  suburban  expresses  reaching  points  within  the  future 
settled  portions  of  the  city  requiring  rapid  operation.  Even  though 
trolley  collection  may  be  retained  for  a  number  of  years  on  the 
interurban  lines,  it  will  be  distinctly  advantageous  to  equip  all  motor 
cars  for  third  rail  collection  within  the  tunnel  in  order  to  avoid 
interruptions  and  delays  therein  due  to  trolley  troubles.  For  this 
purpose  a  type  of  collecting  shoe  may  be  used  which  will  afford  no 
serious   obstructions   when   running  along  the   street  or  highway. 


TWIN  PEAKS  TUNNEL 


261 


It  may  be  either  of  the  raised  or  lowered  type,  held  m  contact  by 
air  pressure  and  released  when  the  trolley  is  lifted. 

In  the  sketches  of  tunnel  sections  appended,  the  standard  clear- 
ance line  for  third  rail  collection  has  been  indicated  as  established 
by  the  Committee  on  Electrification  of  the  American  Electric  Rail- 
way Association,  in  conformity  with  the  best  American  practice. 

Utilities,  Provision  should  be  made  throughout  the  tunnel 
for  the  accommodation  of  such  utilities  as  are  necessary  in  its 
operation,  such  as  power  cables,  lighting  cables,  signal  wires  fire 
line  with  hydrants  and  attached  hose  reel  located  at  intervals  in 
wall  niches.  It  may  be  also  desirable  for  additional  conduits  to 
be  built  into  the  floor  or  structure  wherever  practicable,  for  the 
purpose  of  renting  by  the  City  to  other  corporations  or  for  its 
own  system  of  electrical  distribution  as  may  be  developed  from 
its  water  properties.  The  space  available  for  the  extra  utilities 
is  limited  and  if  the  tunnel  bore  were  to  be  used  for  carrying  bulky 
utilities  through  the  hill,  special  provision  would  have  to  be  made 
for  this  purpose  over  that  shown  herein. 

All  sections  of  the  structure  shown  or  recommended  are  for 
reinforced  concrete,  for  with  the  combination  of  concrete  and  steel 
of  various  shapes  are  obtained  the  maximum  strength  with  the 
minimum  section  for  the  least  cost. 

It  is  also  more  readily  moulded  into  the  many  varying  and 
complicated  shapes  required,  and  more  impervious  to  moisture 
than  any  of  the  other  materials  available  for  this  work. 

Capacity  of  Tunnel,  In  so  large  an  investment  as  here  rep- 
resented, every  reasonable  means  must  be  adopted  to  secure  imme- 
diate and  continuous  return.  Were  the  tunnel  of  comparatively 
short  length  and  the  investment  correspondingly  small,  it  would 
not  be  advisable  to  consider  the  operation  of  two  types  of  equip- 
ment, possessing  widely  differing  characteristics  in  starting  and 
running  speeds,  within  the  same  bore.  With  this  tunnel,  how- 
ever the  investment  is  so  large  that  a  combined  use  of  the  bore 
becomes  necessary  for  the  time  being  until  future  development, 
local  and  Peninsular,  shall  render  necessary  the  construction  of  a 
supplemental  bore  to  be  devoted  to  high-speed  service  only.  For- 
tunately, the  standard  trolley  equipment  of  San  Francisco  is  fitted 
with  high-power  motors,  capable  of  a  free-running  speed  of  23 
miles  per  hour  on  the  level,  so  that  it  is  possible  for  this  equip- 
ment to  keep  pace  fairly  well  with  the  interurban  equipment. 

The  capacity  of  the  tunnel  may  be  estimated,  based  upon  the 
minimum  safe  headway  which  it  is  possible  to  operate  with  a 
given  type  of  equipment.  Considering  the  Geary  Street  cars  as 
representative  trolley  equipment,  it  appears  that  local  trolky  cars 


i 


i^ 


1.  » 


i 


262  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

cannot  operate  closer  to  the  expresses  than  about  185  seconds,  as- 
suming an  express  run  direct  from  Church  Street  to  the  south- 
west portal  at  an  average  schedule  speed  of  25  miles  per  hour. 
With  express  cars  passing  locals  at  Eureka  Valley  and  Laguna 
Honda  stations,  the  trolley  cars  could  follow  at  a  minimum  headway 
of  about  80  seconds  without  interfering  with  the  express  schedules. 
In  normal  operation  of  this  combination  service,  it  would  prob- 
ably occur  that  if  trolley  cars  were  operating  on  less  than  a  three- 
minute  headway,  it  would  be  necessary  to  "bunch"  trolley  cars 
behind  an  express,  in  order  to  give  the  latter  a  clear  track.  Un- 
der these  conditions,  the  capacity  of  the  tunnel  in  cars  per  hour 
would  be  as  follows: 

Assuming  an  express  schedule  speed  of  25  miles  per  hour, 
running  on  15  minutes  headway,  it  will  be  possible  to  pass  through 
the  tunnel  78  local  carsf  per  hour,  or  82  total,  with  no  express 
stops  between  Eureka  Street  and  the  west  portal.  This  means  that 
the  tunnel  is  kept  entirely  clear  of  trolleys  at  the  time  of  express 
runs.  As  the  express  cars  become  more  frequent,  the  maximum 
permissible  cars  per  hour  also  decreases  rapidly  so  that  with  a 
five-minute  express  headway,  only  about  68  cars  per  hour  total 
may  be  passed  through  without  interference.  On  the  other  hand, 
with  no  express  service,  about  85  cars  per  hour  may  be  passed 
through  the  tunnel  under  safe  operating  conditions,  and  using 
two-car  stops  as  recommended  for  lower  Market  Street. 

Four-tracking.  The  time  to  consider  the  construction  of  an 
additional  two-track  tunnel  will  have  arrived  when  the  possibil- 
ities of  every  device  designed  to  reduce  the  safe  headway  has  been 
exhausted.  As  the  importance  of  express  traffic  increases,  the  pro- 
portion of  express  to  local  will  be  dictated  by  the  necessities  of 
the  former,  not  the  latter.  By  the  exclusion  of  trolley  cars,  replac- 
ing them  by  high-speed  tunnel  cars  giving  shuttle  line  transfers, 
the  time  for  four-tracking  may  be  somewhat  deferred.  Further, 
by  improvements  in  signaling  from  time  to  time  the  capacity  of 
the  bore  may  be  further  enhanced.  It  is  more  than  probable  that 
before  the  capacity  of  the  bore  is  reached  a  continuation*  of  the  sub- 
way down  Market  Street  to  the  Ferry  will  have  become  a  reality, 
with  branches  into  the  Mission  and  Richmond  and  possibly  upper 
Sunset.  The  necessity  will  then  more  than  ever  arise  for  the  organi- 
zation of  the  service  upon  an  exclusively  rapid  transit  basis  with 
outlying  feeders  developed  to  the  maximum  extent.     (Plate  \6.) 

Fare  Collection.  The  method  of  fare  collection  at  the  various 
stations  and  at  portals  is  dependent  largely  upon  how  much  of 
the  complete  project  is  built  now  and  upon  the  type  of  equipment 

f  With    two-car    stops. 


TWIN  PEAKS  TUNNEL 


263 


operated  through  the  tunnel.  If  only  the  hill  section  >s  con- 
structed now,  the  present  method  of  fare  collection  will  probably 
suffice.  And  even  if  the  entire  project  is  constructed  but  trolley 
cars  are  run  through  the  tunnel  in  considerable  numbers,  prepay  fare 
collection  on  individual  cars  may  still  be  desirable  because  of  the 
complication  ensuing  in  accounting  between  various  lines  using  the 
tunnel  if  an  entrance  booth  collection  were  used.  Eventually, 
when  only  rapid  transit  lines  use  the  bore,  booth  collection  will  have 
to  be  installed ;  but  for  the  present  it  is  believed  that  the  prevailing 
methods  of  fare  collection  will  suffice  without  excessively  delaying 

the  schedule.  .       ,      .,       * 

There  is  ample  opportunity  for  installing  collection  booths  at 
all  of  the  stations  when  traffic  conditions  warrant,  without  addi- 
tional land  being  necessary.  At  Church  Street,  the  entrance  con- 
courses may  be  extended  east  and  west  under  Church  Street  within 
the  street  line.  At  Eureka  Valley  a  single  entrance  can  be  de- 
veloped in  Diamond  Street  with  exits  at  Eureka  and  CoUmgwood 
as  now  shown  on  the  plans ;  or  if  a  reservoir  station  is  constructed 
at  this  location,  (that  is,  permitting  passing  tracks  for  expresses 
and  locals),  prepay  entrances  can  be  developed  at  both  ends,  as 
well  as  exits.  This  question  of  fare  collection,  therefore,  need  not 
enter  seriously  into  the  present  arrangements. 

Ventilation      Provision  has  been  made  in  the  designs,  (Plate 
15-)    for  forced  ventilation,  the  crown  of  the  single-bore  arch  bemg 
divided  for  this  purpose,  so  as  to  provide  separate  ducts  orawing 
air  from  different  points  in  the  bore.     Although  the  installation  o 
ventilating  equipment  may  not  be  necessary  during  the  early  period 
of  operation,  provision  for  later  installation  should  not  be  neglected 
now  which  would  render  an  effective  system  difficult  to  obtain  a 
such  time  as  the  tunnel  traffic  has  become  so  extensive  that  natural 
ventilation  becomes  inadequate.     The  location  of  the  Laguna  Honda 
station  at  the  summit  with  descending  grades  in  both  direction 
offers  a  convenient  opportunity  for  ventilation,  especially  as  the 
station  at  this  point,  when  completed,  will  constitute  an  open  por- 
tal    The  proportions  shown  herein  are  contemplated  to  provide  a 
complete  change  of  air  within  the  bore  every  20  minutes  by  me- 
chrnical   ventifation   alone.     And   the   effluent   is   drawn   approx,- 
mately  midway  between  portals  so  that  fresh  air  is  always  enter- 
W  at  the  por^tals.     This  is  important  in  case  of  an  accident  and 
fir!  within  the  tunnel,  when  passengers  would  always  have  an  op- 
portunity of  escape  in  the  direction  of  the  portals,  facing  fresh  air. 
Terminals        Any  extensive  development  of  Peninsular  service 
will  unquestionably  require  corresponding  terminal  development  in 
the  vicinity  of  the  northern  portal  in  West  Mission  Street.     And 


'I 


i; 


4  r,j 


I 


264  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

with  adequate  transfer  facilities  to  present  surface  lines,  it  would 
be  possible  for  such  terminal  to  be  made  use  of  as  a  point  of 
originating  traffic  without  the  necessity  of  the  large  interurban  cars 
using  Mission  Street.  There  is  much  to  be  gained  in  this  plan  be- 
cause of  the  high  speed  gear  ratio  that  could  be  used  on  the  ter- 
minal trains,  whereas  such  a  ratio  would  be  undesirable  for  cars 
operated  along  surface  streets  with  frequent  stops.  So  that  with 
the  rapid  transit  lines  operating  in  harmony  with  the  surface  sys- 
tem, every  consideration  of  efficiency  points  to  the  desirability  of 
developing  a  terminal  near  the  northeast  portal. 

Here  it  is  pertinent  to  point  out  that  one  of  the  chief  argu- 
ments for  extending  the  tunnel  down  Market  Street  at  this  time 
is  to  provide  terminal  facilities  for  peninsular  and  suburban  lines 
operating  independently  of  the  present  United  Railroads  lines.  By 
emerging  from  the  tunnel  at  Eureka  Street  no  independent  line 
can  use  the  tunnel  unless  four  tracks  are  installed  the  entire  length 

of  Market  Street. 

The  McCoppin  Street  portal  will  be  useful  in  this  connection 
even  after  the  extension  of  the  subway  down  Market  Street,  as  a 
convenient  means  of  routing  terminal  cars  out  of  the  main  bore.  It 
is  also  well  located  with  respect  to  storage  of  cars  during  non-rush 
hours— provided  the  land  does  not  become  so  valuable  as  to  pre- 
clude its  use  for  this  purpose. 

Suburban  Connections.  The  maximum  usefulness  of  this 
rapid  transit  project  will  be  derived  by  a  system  of  feeders  thor- 
oughly covering  outlying  suburban  territory,  which  deliver  the 
long-haul  passengers  to  the  rapid  transit  line,  rather  than  to  at- 
tempt the  passage  of  each  local  trolley  line  through  the  bore.  This 
maximum  usage  will  come  when  trolley  cars  are  entirely  excluded. 
On  general  principles,  passengers  do  not  object  to  transferring  from 
local  to  express  cars  if  the  transfer  is  made  convenient  with  cars 
running  strictly  on  schedule,  and  there  is  anything  to  be  gained  in 
time.  The  development  of  these  feeders  is  particularly  important 
in  the  outlying  districts  southwest  of  the  Twin  Peaks  ridge,  and 
a  number  of  suggested  lines  in  addition  to  the  present  ones  are 
shown  in  Plate  17. 

Tributary  Area.  It  is  not  generally  realized  how  much  habit- 
able land  exists  in  the  territory  which  is  to  be  regarded  as  tribu- 
tary to  this  Market  Street  extension  line.  Leaving  entirely  out 
of  consideration  Eureka  Valley  and  upper  Market  Street  as  tribu- 
tary to  this  project,  the  contour  map,  Plate  17,  shows : 

First,  the  comparatively  level  land  available; 

Second,  the  areas  of  greater  than  10%  slope; 

Third,  the  areas  of  greater  than  25%  slope, — 


TWIN  PEAKS  TUNNEL 


265 


all  within  the  region  bounded  by  Lincoln  Way  and  the  Twm  Peaks 
ridge.  The  shading  on  this  map  indicates  that  only  a  compara- 
tively small  area  has  vertical  slopes  of  more  than  25%,  and  even 
these  are  capable  of  being  converted  into  desirable  residence  areas 
by  means  of  the  contour  plan  of  street  subdivision.  This  map 
shows  clearly  the  extent  of  the  middle  valleys  lying  to  the  south- 
west of  Twin  Peaks  in  the  San  Miguel  Rancho,  the  development 
of  which  has  been  one  specific  object  of  the  Laguna  Honda  station. 

Running   Time.       This  map,  Plate  17,  also  shows  the  possible 
running  time  from  the  central  business  district— Third  Street— via 
the  tunnel  route,  as  compared  with  that  of  other  existing  surface 
lines.     Moreover,  only  the  local  time  of  transit  is  shown,  and  not 
the  express  time.     It  will  be   seen  that  the  ocean  beach  can  be 
reached  for  some  distance  in  30  to  35  minutes,  while  30  minutes  is 
now  consumed  in  reaching  Ashbury  Heights,  half  this  distance. 
Northeast  Sunset  District  may  be  reached  sooner  by  transfer  at 
Laguna  Honda  station  to  a  proposed  Seventh  Avenue  line  than  by 
the  present  line  along  Lincoln  Way.     However,  this  would  not  be 
the  case  were  the  Mission-Sunset  tunnel  built.     The  San  Miguel 
tract     may  be  reached  within  20  to  25  minutes.     Furthermore,  a 
large  part  of  Sunset  is  brought  within  the  30-minute  time  zone; 
and  in  the  strip  adjacent  to  the  rapid  transit  line,  the  30-minute 
time  zone  is  extended  as  far  south  as  Colma  for  local  suburban  ser- 
vice.    These  results  illustrate  the  possibilities  of  development  of 
desirable  territory  through  adequate  transportation. 

Grade  Separation.  The  alignment  of  this  rapid  transit  line 
south  of  the  south  portal  is  indicated  tentatively.  (Plate  13.)  For 
the  present,  it  is  contemplated  that  the  line  will  reach  present 
grade  at  the  bend  in  Sloat  Boulevard,  thence  paralleling  the  pres- 
ent surface  tracks  to  Ocean  Avenue  (Plate  15),  and  thence  by  the 
best  grade  route  down  the  Peninsula  as  may  be  determined  by  de- 
tailed surveys.  All  Parkside  lines  will  route  off  from  the  main 
line  at  the  southwest  portal,  and  the  remaining  feeders  should 
divert  from  the  main  line  at  Sloat  Boulevard,  using  the  present 
tracks  on  Junipero  Serra  Boulevard. 

This  condition,  however,  cannot  last  many  years,  and  eventu- 
ally grade  separation  at  Ingleside  will  become  a  necessity.  A  sug- 
gested diversion  of  the  main  line  from  the  southern  portal  to 
accomplish  this  grade  separation  is  shown  dotted  in  Plate  13,  this 
alignment  taking  advantage  of  the  higher  levels  to  remove  the  re- 
verse curve  at  present  existing,  and  secure  grade  separations  at 
Corbett  Road  and  Ocean  Avenue,  and  a  depressed  transit  line 
through  the  upper  Ingleside  tract  by  open  cut,  about  one  block  east 
of  the  boulevard— 250  feet— thence  crossing  the  lower  Ingleside 


'i^l 


f ; 


266 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


tract  to  a  continuous  right-of-way  either  to  the  right  or  the  left 
of  the  boulevard.  And  it  is  extremely  important  that  the  plans 
for  the  subdivision  of  this  territory  be  so  drawn  as  to  permit  of  this 
future  grade  separation  without  destroying  or  damaging  improved 
property.  The  depressed  trackway  can  be  carried  through  as  in- 
dicated in  Plate  15  without  deteriorating  adjoining  property.  An 
example  of  this  may  be  found  in  the  four-track  open  cut  of  the 
Brighton  Beach  Rapid  Transit  line  in  Brooklyn.  This  design  will 
be  even  more  attractive  with  grass  slopes,  although  requiring 
greater  width. 

Subdivision  of  Land.  In  anticipation  of  transit  improve- 
ments, a  number  of  subdivisions  are  under  way  in  San  Miguel 
Rancho  and  vicinity,  and  it  cannot  be  too  strongly  urged  that  these 
subdivisions  be  co-ordinated  with  reference  to  inter-connectmg 
streets  and  transit  facilities,  instead  of  simply  developing  inde- 
pendently each  particular  parcel  of  property.  The  City  of  San 
Francisco  is  today  suffering  from  the  effects  of  subdivision  regard- 
less of  contours.  Here  is  a  chance  for  improvement,  and  the  City 
should  not  only  refuse  its  approval  of  any  subdivision  which  docs 
not  co-ordinate  with  those  already  perfected,  but  it  should  com- 
pel a  proper  subdivision  to  be  made.  The  importance  of  this  will 
be  seen  when  it  is  appreciated  that,  by  the  contour  method  of  sub- 
division, a  considerable  part  of  the  area  shown  on  Plate  17,  above 
25%  in'  grade,  and  all  of  the  area  above  10%  slope,  can  be  ren- 
dered available  for  attractive  residential  territory.  This  matter  is 
so  important  that  it  should  be  put  in  charge  of  a  definite  and  per- 
manent civic  organization  with  power  to  act. 

Disposal  of  Material.  There  arc  a  number  of  good  oppor- 
tunities of  utilizing  to  advantage  the  material  excavated  from  this 
tunnel.  The  construction  work  would  naturally  divide  itself  into 
three  parts: 

First,  the  south  section,  between  the  portal  and  Laguna  Honda 
station ; 

Second,  the  middle  section,  between  Laguna  Honda  station  and 

Eureka  Street;  and 
Third,  the  north  section,  between  Eureka  Street  and  the  north 

portal. 

The  material  from  the  first  section  can  be  delivered  by  gravity 
to  a  fill  across  the  gully  paralleling  Corbett  Road,  it  being  desirable 
to  fill  up  this  gully  for  some  distance  back  to  provide  suitable  resi- 
dence land. 

The  material  from  the  second  and  third  sections  can  be  de- 
livered by  e-ravitv  in  the  other  direction,  and  all  conveved  to  the 
Tslais   Creek  flats.     The  irregular  area  between   Army  Street  and 


TWIN  PEAKS  TUNNEL 


267 


Twenty-fifth  Street  could  also  be  filled  to  grade  advantageously 
in  order  to  facilitate  the  extension  of  Potrero  Boulevard  down  San 
Bruno  Road.  The  excavated  material  may  readily  be  hauled  over 
street  car  tracks  at  certain  times  of  the  day  and  at  night,  under 
special  arrangement  with  the  railway  company. 

Requisition  of  Property  and  Easements.  In  providing  suf- 
ficient property  tor  carrying  out  this  project,  complete  surveys 
have  been  made  of  the  right-of-way  by  the  City  Engineer,  and 
computations  and  descriptions  of  the  property  necessary  have  been 
prepared  in  connection  with  the  City  Engineer's  office.  This  de- 
scription covers  sufficient  property  for  the  construction  of  the  sta- 
tions contemplated  for  the  future  as  well  as  the  present  project.f 

Mission-Sunset  Project 

The  present  plans  in  Eureka  Valley  district  provide,  in  addi- 
to  future  reservoir  passing  tracks  for  expresses  and  locals,  that  the 
proposed  Mission-Sunset  traffic  tunnel  may  be  utilized  also  for  the 
ultimate  construction  of  a  subway  connecting  the  Eureka  Street 
portal  with  upper  Sunset,  and  following  the  same  alignment  as  the 
traffic  tunnel.  And  a  design  for  this  tunnel  is  herein  shown.  Fig. 
66,  which  contemplates  this  improvement.  Instead  of  building  the 
original  traffic  tunnel  of  sufficient  width  for  accommodating  both 


WATER-PROOFING 


ROCK 


WATERPROOFING 


r.ROSS   SECTION  FOR  ROCK 


FIGURE  66— TYPICAL  CROSS-SECTION   OF   MISSION-SUNSET  TUNNEL. 

Designed  for  construction  in  rock.  Total  width  of  bore,  42  feet.  This  may 
be  erected  in  two  stages  if  desired  Traffic  tunnel,  tirst  stage;  subway, 
second  stage. 

tThis  detailed  description,  although  published  in  Preliminary  Report  No.  8,  is  omitted 
herein   for  the   sake  of  brevity. 


268 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


TWIN  PEAKS  TUNNEL 


269 


.waT«*^'*00»«s.. 


il 


'^P 


I 

I 


'I' 


EARTH 


CROSS   SECTION  FOR  EARTH 


I  IN=    e  FT. 

FIGURE   67— TYPICAL    CROSS-SECTION    OF    MISSION-SUNSET    TUNNEL. 

For  construction  through  earth,  in  two  stages  if  desired.    Total  width  of 


bore,  42  feet ;  30  feet  roadway. 


v^A^en  ^wooriNS 


mocn 


ROCK 


,M»g.w       O^T 


FIGURE   68— TYPICAL  CROSS-SECTION   OF   COMBINED  TRAFFIC-TRANSIT 

TUNNEL. 

With  provision  for  both  surface  and  subway  transit  lines.  Total  width 
of  bore,  60  feet ;  24  ft.  roadway.  Corresponding  to  the  design  already  sub- 
mitted for  the  Broadway  tunnel,  except  that  the  subway  project  is  added. 


FIGURE    69— MISSION-SUNSET  TUNNEL  PORTAL. 
Typical    arrangement    of    combined    traffic    and   transit    tunnel,    showing 
method  of  utilizing  sub-grades  for  present  surface  cars  and  also  for  a  future 
subway  connection  directly  with  Market  Street  subway  bore. 


|l 


270 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


traffic  and  car  lines,  the  bore  is  narrowed  to  accommodate  only 
vehicle  traffic  and  pedestrians  from  surface  to  surface.  Car  lines 
are  to  be  run  at  a  lower  level  beneath  the  roadway.  Up  to  the  time 
that  subway  cars  are  required,  this  low-level  bore  may  be  reached 
by  incline  at  each  portal.  Ultimately,  this  bore  may  be  used  by 
both  subway  and  trolley  cars,  the  subway  tracks  continuing  to  an 
intersection  at  subway  grade  with  the  Market  Street  line,  and  the 
trolley  cars  routing  out  to  the  surface  at  Eureka  Street  as  before, 
or  continuing  through  the  Market  Street  bore  as  far  as  Valencia 
Street,  until  such  time  as  the  trolley  cars  will  be  entirely  excluded 
from  the  bore.  With  this  in  view,  the  Mission-Sunset  tunnel  should 
be  designed  to  accommodate  subway  car  clearances. 

Combined  Traffic  Tunnel.  This  section  has  the  advantage  of 
being  suitable  for  construction  in  narrow  streets.  It  will  largely 
remove  the  element  of  danger  arising  from  the  possibility  of  the 
supporting  thrust  of  the  earth  being  removed  behind  the  abutment 
in  the  event  of  excavation  by  private  parties  along  the  street  line, 
which  in  the  case  of  the  wide  span  arch  with  abutments  close  to 
the  street  line  would  render  the  arch  unstable.  This  reduced  width 
of  structure  would  obviate  the  necessity  of  acquiring  easement  rights 
in  private  property  for  the  protection  of  the  structure. 


CHAPTER  12 

STREET  AND  DISTRICT  IMPROVEMENTS 

Extensions,  Widenings,  Cuts  and  Fills 
Supplemental  Tunnel  Projects 

In  connection  with  the  development  of  an  adequate  transit  system  for 
San  Francisco  as  outlined  in  Chapter  3.  it  is  essential  that  certain  improve- 
ments he  made  in  the  present  street  plan  if  the  most  effective  distribution  of 
service  is  to  he  prompt^  realized.  The  Burnham  Plan  is  of  great  value 
in  focusing  attention  upon  the  major  problems  of  the  future  cit})  plan,  but 
with  the  exception  of  a  few  which  possess  unusual  strategic  value  in  the 
realization  of  a  great  future  rapid  transit  system,  the  improvements  here 
recommended  will  be  comparatively)  inexpensive  or  of  unusual  importance. 
The  relative  urgency  of  these  projects  is  dependent  somewhat  upon  the 
developments  of  the  near  future,  but  they  should  all  receive  serious  con- 
sideration in  any  study  of  a  comprehensive  transit  plan.  Certain  tunnel 
projects  additional  to  those  already  recommended  in  Chapters  10  and  11 
ore  discussed. 

RECOMMENDATIONS 

1.  Bernal  Cut  should  be  developed  as  a  new  outlet  from  the 
Mission  for  both  rapid  transit  and  vehicle  traffic,  and  in  connection 
with  the  improvement  of  Circular  Avenue. 

2.  Market  Street  should  be  extended  on  the  contour  plan 
around  Twin  Peaks  as  a  low-grade  vehicle  route,  supplementing  the 

Twin  Peaks  tunnel. 

3.  Van  Ness  Avenue  should  be  extended  to  Mission  Street, 
forming  the  intersection  which  will  be  the  most  important  transit 

center  in  the  city. 

4.  Hayes  Street  grade  should  be  lowered  at  Alamo  Square 
to  re-establish  direct  car  service  to  the  district  north  of  the  Pan- 
handle. 

5.  Noe  Valley  should  be  made  more  accessible  by  means  of  a 
short  diverting  tunnel  on  the  Church  Street  alignment. 

6.  Kearny  Street  may  be  effectively  extended  by  tunnel  under 
Telegraph  Hill,  if  the  assessments  do  not  prove  excessive. 

7.  Recession  of  the  projecting  corner  of  Sacramento  Street  at 
The  Embarcadero  is  imperative  at  least,  if  not  a  comprehensive  plan 
of  frontage  equalization. 


"i'4 


111 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


w 


8.  Potrero  and  San  Bruno  Avenues  should  be  improved  as  a 
direct  southern  outlet  from  the  business  center. 

9.  Sansome  Street  regrade,  to  be  effective,  should  include 
Broadway  as  far  as  Kearny  Street  and  also  Pacific  Street. 

10.  Automobile  stands  should  be  provided  on  two  or  three 
sides  of  Union  Square  to  avoid  present  vehicle  congestion. 

11.  City  traffic  ordinances  should  be  perfected  and  enforced  so 
as  to  encourage  rapid  operation. 

12.  Park  crossings  have  become  an  essential  means  of  con- 
necting Sunset  and  Richmond  districts. 

13.  Sidewalk  widths  should  be  reduced  at  least  along  trunk 
lines,  to  preserve  free  way  between  cars  and  vehicles  standing 
along  curb. 

14.  Hillside  property  should  be  subdivided  on  the  contour  street 
plan  in  order  to  permit  transit  service. 

15.  Railroad  grade  crossings  should  be  eliminated,  especially 
across  heavy  traffic  arteries,  such  as  intersect  the  Southern  Pacific 
line  through  the  Mission. 

16.  Future  subdivisions  of  level  tracts  should  provide  long 
blocks  along  streets  occupied  by  transit  lines,  and  short  blocks 
transversely. 

17.  Central  parking  on  wide  thoroughfares  combines  attractive- 
ness with  rapid  transit. 

18.  Ferry  terminal  development  southward  as  well  as  north- 
ward wJll  encourage  the  use  of  Mission  Street  and  reduce  Market 
Street  congestion. 

19.  Berry,  Division  and  Fourteenth  Streets  should  be  improved 
as  a  short  route  from  The  Embarcadero  and  Depot  to  the  Mission. 

20.  Eventually  Hayes  ridge  should  be  tunneled  diagonally  un- 
der Alamo  Square,  from  Fillmore  to  Divisadero  Streets,  on  the 
two-level  plan. 

DISCUSSION 

Widening  of  Bernal  Cut.  Normal  growth  of  the  Mission 
district  southward  is  arrested  by  the  steep  grades  encountered  on 
Mission  Street  between  Cortland  and  St.  Mary's  Avenues.  The 
traffic  at  this  important  throat  is  already  so  great  that  it  has  become 
necessary  to  increase  the  capacity  at  this  point  by  opening  a  new 
thoroughfare  for  all  kinds  of  traffic  through  the  Bernal  Cut  (now 
owned  and  used  by  the  Southern  Pacific  Company).  The  strategic 
position  of  Bernal  Cut  and  its  use  as  a  rapid  transit  outlet  have  been 
presented  (Chapter  3)  ;  but  it  is  equally  as  important  as  an  easy 
grade  outlet  for  vehicle  traffic  from  the  several  converging  thor- 
oughfares. 


STREET  IMPROVEMENTS 


273 


FIGURE   70 -CONTOUR   AND   SLOPE   MAP   OF   SAN   FRANCISCO. 

Prepared  from  a  contour  model  of  the  city,  with  no  streets  shown  thus 
indicating  the  natural  barriers  to  growth,  the  opportunity  for  diagonal  streets, 
the  few  low-level  passes  existing,  and  the  obvious  necessity  for  tunnel  con- 
struction Successive  levels  may  be  followed  by  20-foot  contours,  while  all 
slopes  over  10%  and  25%  are  indicated  by  light  shadmg  and  heavy  shading 
respectively.  Obviously  these  extensive  areas  of  excessive  slopes  can  only 
be  developed  by  the  subdivision  of  property  so  as  to  permit  contour  streets 
of  easy  grade. 

Both  Randall  Street  and  St.  Mary's  Avenue  cross  the  Southern 
Pacific  line  at  grade,  and  the  intervening  cut  is  approximately 
2300  ft.  in  length,  with  a  right-of-way  100  ft.  wide.  By  relocating 
Brook  Street  diagonally  as  shown  in  Fig.  18  and  regrading  San 
Jose  Avenue  between  Brook  and  Randall  Streets,  a  route  can  be 
secured  from  Alission  Street  to  the  Cut  with  a  grade  of  about  4%, 
which  is  not  excessive  for  trucking  routes.  This  relocation  is 
necessary  not  only  to  secure  a  more  direct  entrance  to  the  Cut 
from  Mission  Street,  but  also  to  obviate  the  necessity  for  a 
"plateau"  at  the  intersection,  the  addition  of  which  would  seri- 
ously affect  the  present  Mission  Street  grades. 

To  secure  ample  width  for  vehicle  traffic.  Brook  Street  should 
be  at  least  70  ft.  wide.  While  the  present  established  grade 
through  the  Cut  is  suitable  for  track  connections  proposed,  the 
depth  of  the  Cut— 46  ft.— renders  it  expensive  to  widen  at  grade 


INTENTIONAL  SECOND  EXPOSURE 


272 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


8.  Potrcro  and  San  Bruno  Avenues  should  be  improved  as  a 
direct  southern  outlet  from  the  business  center. 

9.  Sansome  Street  regrade,  to  be  effective,  should  include 
Broadway  as  far  as  Kearny  Street  and  also  Pacific  Street. 

10.  Automobile  stands  should  be  provided  on  two  or  three 
sides  of  Union  Square  to  avoid  present  vehicle  congestion. 

11.  City  traffic  ordinances  should  be  perfected  and  enforced  so 
as  to  encourage  rapid  operation. 

12.  Park  crossings  have  become  an  essential  means  of  con- 
necting Sunset  and  Richmond  districts. 

13.  Sidewalk  widths  should  be  reduced  at  least  along  trunk 
lines,  to  preserve  free  way  between  cars  and  vehicles  standing 
along  curb. 

14.  Hillside  property  should  be  subdivided  on  the  contour  street 
plan  in  order  to  permit  transit  service. 

15.  Railroad  grade  crossings  should  be  eliminated,  especially 
across  heavy  traffic  arteries,  such  as  intersect  the  Southern  Pacific 
line  through  the  Mission. 

16.  Future  subdivisions  of  level  tracts  should  provide  long 
blocks  along  streets  occupied  by  transit  lines,  and  short  blocks 
transversely. 

17.  Central  parking  on  wide  thoroughfares  combines  attractive- 
ness with  rapid  transit. 

18.  Ferry  terminal  development  southward  as  well  as  north- 
ward will  encourage  the  use  of  Mission  Street  and  reduce  Market 
Street  congestion. 

19.  Berry,  Division  and  Fourteenth  Streets  should  be  improved 
as  a  short  route  from  The  Embarcadero  and  Depot  to  the  Mission. 

20.  Eventually  Hayes  ridge  should  be  tunneled  diagonally  un- 
der Alamo  Square,  from  Fillmore  to  Divisadero  Streets,  on  the 
two-level  plan. 

DISCUSSION 

Widening  of  Bernal  Cut,  Normal  growth  of  the  Mission 
district  southward  is  arrested  by  the  steep  grades  encountered  on 
Mission  Street  between  Cortland  and  St.  Mary's  Avenues.  The 
traffic  at  this  important  throat  is  already  so  great  that  it  has  become 
necessary  to  increase  the  capacity  at  this  point  by  opening  a  new 
thoroughfare  for  all  kinds  of  traffic  through  the  Bernal  Cut  (now 
owned  and  used  ])y  the  Southern  Pacific  Company).  The  strategic 
position  of  Bernal  Cut  and  its  use  as  a  rapid  transit  outlet  have  been 
presented  (Chapter  3)  ;  but  it  is  equally  as  important  as  an  easy 
grade  outlet  for  vehicle  traffic  from  the  several  converging  thor- 
oughfares. 


STREET  IMPROVEMENTS 


273 


I 


SLOPE  MAP 

^    BION  J.ARNOLD        U    4\ 
70THl«<M»0AR0CF SUPERVISORS  '     f  ^^ 
CITY  OF  SANTRANCISCO 

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■^~-^\  jj 


FIGURE   70 -CONTOUR   AND   SLOPE   >rAP   OF   SAN   FRANCISCO. 

Prepared  from  a  contour  model  of  the  city,  with  no  streets  shown,  thus 
indicating  the  natural  harriers  to  growth,  the  opportunity  for  diagonal  streets, 
the  few  low-level  passes  existing,  and  the  obvious  necessity  for  tunnel  con- 
struction. Successive  levels  may  be  followed  by  20-foot  contours,  while  all 
slopes  over  lO^r;  and  25 ^.v  arc  indicated  by  light  shading  and  heavy  shading 
respcctivelv.  Obviouslv  these  extensive  areas  of  excessive  slopes  can  only 
be  developed  by  the  subdivision  of  property  so  as  to  permit  contour  streets 
of  easy  grade. 

r.olh  Randall  Street  and  St.  Mary's  Avenue  cross  the  Southern 
Pacific  line  at  grade,  and  the  intervening  cut  is  approximately 
2300  ft.  in  length,  with  a  right-of-way  100  ft.  wide.  By  relocating 
Brook  Street 'diagonally  as  shown  in  Fig.  18  and  regrading  San 
Jose  Avenue  between  Brook  and  Randall  Streets,  a  route  can  be 
secured  from  Mission  Street  to  the  Cut  iMi  a  p'odc  of  about  4%, 
which  is  not  excessive  for  trucking  routes.  This  relocation  is 
necessary  not  only  to  secure  a  more  direct  entrance  to  the  Cut 
from  Mission  Street,  but  also  to  obviate  the  necessity  tor  a 
"plateau"  at  the  intersection,  the  addition  of  which  would  seri- 
ouslv  affect  the  present  ^Mission  Street  grades. 

To  secure  ample  width  for  vehicle  traffic.  Brook  Street  should 
be  at  least  70  ft.  wide.  While  the  present  established  grade 
through  the  Cut  is  suitable  for  track  connections  proposed,  the 
depth'^of  the  Cut — \6  ft.— renders  it  expensive  to  widen  at  grade 


I 


I 


:J 


274 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


for  roadways;  so  that  the  terraced  plan  (Fig.  71)  probably  repre- 
sents the  most  practicable  method  for  not  over  4%  approach 
grades.  At  the  entrances  to  the  Cut  both  tracks  and  roadway  are 
on  level,  but  at  Randall  Street,  the  first  grade  separation,  some 
regrading  is  necessary  to  preserve  vehicle  freeway  and  headrooir., 
which  in  any  case  would  be  desirable  to  preserve  ari  easy  grade 
approach  into  the  Cut  for  vehicles.  With  this  arrangement  a  mini- 
mum expenditure  for  retaining  walls  will  be  required,  and  the  grade? 
can  be  adjusted  in  such  a  manner  as  to  equalize  the  cut  and  backfill. 
Sidewalks  may  follow  the  natural  surface,  but  stairways  to  the 
street  level  should  be  provided  from  cross  streets.  Vehicles 
can  return  to  Mission  Street  on  St.  Mary's  Avenue,  which  is 
practically  level.  To  extend  the  new  thoroughfare,  it  will  be 
advisable  to  use  the  alignment  of  the  present  right-of-way  at  least 
as  far  as  San  Jose  Avenue. 


•TMKWAv*  «r  rraccT   Eo 

INTCH*C£TIONS. 


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o«CPe»T  ««kirr  or  thc  cot  thc  p«c»cnt 

BAirrH    SU>PCS  An E  SHOWN   APOqoXiMATtl.'' 
•   OMty    BV  TtBWACINOTMB  OAMC,  TWO    «OA0- 
WAV«    VOR    VCHICLC*   ANO  aUMKACC  CAMC 

THC    tOWm   LCVCl.    !•  ron    (^API0TBA^4«IT 

kiNKae*M.v.    TMC  uPPKK  I.CVC1.  CAN  ac 
MCACHco   PPOM  MiaaioNi  jtbcct  witm 

A  aRAOC  0»  NOT  OVCR    •♦H,  PWOVIOCO   A 
CONNCCTION    IS  MADC  AT   anOOK    8TBCET 


sccTON   roB 

BCntMAl-    CUT. 

nt^omr     or 

aioN  J    AnNoio 
TosoMwor  aurCRviaons 
crrv  or  can  rttANCiftCO. 


FIGURE   71— DEVELOPMENT   OF   BERNAL  CUT. 

The  joint  improvement  of  the  old  Southern  Pacific  right-of-way  through 
the  Mission  as  a  new  low-grade  outlet  to  the  south  centers  in  Bernal  Cut  and 
its  logical  extensions — Circular  Avenue.  This  cross-section  illustrates  a 
plan  for  equalizing  the  cut  and  fill  so  as  to  provide  separate  levels  for  street 
and  car  trafiic  and  for  rapid  transit  lines.  By  the  method  of  terracing 
shown  a  material  saving  in  the  cost  of  retaining  walls  will  be  effected,  at  the 
same  time  utilizing  practically  the  full  width  of  the  present  right-of-way— 100 
feet.  • 


I 


STREET  IMPROVEMENTS 


275 


Improveiiient  of  Circular  Avenue  should  be  undertaken  at 
the  same  time  as  a  joint  project  by  City  and  Railroad  Company. 
The  roadway  should  be  extended  along  the  right-of-way  at  least 
to  Ocean  Avenue,  a  strip  of  Balboa  Park  being  used  for  this 
purpose.  On  account  of  the  existing  slopes,  it  is  probable  that 
the  tracks  may  best  be  retained  in  their  present  alignment,  and 
the  Avenue  developed  entirely  to  the  west. 

Hayes  Street  Cut.  In  order  to  re-establish  direct  car 
service  to  the  Hayes  Street  district  north  of  the  Panhandle,  it 
is  necessary  to  provide  a  lower  grade  between  Pierce  and  Scott 
Streets.  And  by  a  cut  of  15  ft.  across  the  plateau  at  Pierce 
Street,  the  maximum  grade  may  be  reduced  from  14.6  to  10.9% 
(See  Fig.  72),  which  is  within  reasonable  limits  for  electric 
e(iuipment.  If  a  terraced  arrangement  is  used,  with  half  the  cut 
in  the  roadway  and  half  in  the  walkway,  the  cost  for  retaining 
walls  will  be  considerably  less  than  if  the  cut  is  extended  full 
depth  between  property  lines. 

Market  Street  Cat,  The  recommended  location  of  the 
subway  in  upper  Market  Street  will  not  interfere  with  the  plan 
for  improving  the  grade  beyond  Valencia  Street.  In  any 
event,  as  a  surface  approach  to  the  proposed  Mission-Sunset  tunnel 
the  grade  ought  to  be  lowered  to  4%  between  Waller  and  Bu- 
chanan Streets,  and  between  Church  and  Sanchez  Streets.  This 
project  will  be  the  more  necessary  if  the  Twin  Peaks  tunnel  is  not 
built  east  of  Castro  Street. 

Supplemental  Tunnel  Projects 

In  addition  to  recommendations  already  made  on  tunnels  to 
Harbor  View  and  under  Twin  Peaks,  there  are  a  number  of  other 
projects  to  be  discussed,  some  of  which  are  now  or  will  eventually 
become  necessary  to  the  proper  development  of  the  city. 

Telegraph  Hill  Tunnel.  For  some  years  this  project  has 
l3cen  discussed  as  desirable  for  both  transit  and  traffic  purposes, 
and  the  recent  consideration  that  has  been  given  to  the  possibility 
of  locating  the  Marin  County  ferry  terminal  further  north  along 
the  Harbor.  Front  lends  much  weight  to  the  possibility  of  this 
tunnel  project.  It  is  apparent,  however,  that  any  tunnel  through 
Telegraph  Hill,  except  for  transit  purposes  alone,  can  directly 
serve  only  a  comparatively  small  area  between  the  hill  and  The 
Embarcadero,  which  will  presumably  be  always  devoted  to  manu- 
facturing and  warehouse  purposes.  Three  locations  have  been 
considered:  (a)  straight  extension  of  Montgomery  Street;  (b) 
straight  extension  of  Kearny  Street;  (c)  diagonal  alignment  from 
Kearny  and  Columbus  to  Powell  and  Chestnut  Streets. 


276  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

■ION  J.  ARNOLD 


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FIGURE  72  —PROFILE  OF  HAYES  AND  PIERCE  STREETS. 

Hayes  Street  Hill  now  imposes  an  impossible  barrier  to  direct  car 
service  to  the  Park  as  was  provided  in  the  days  of  cable  operation.  These 
two  profiles  show  the  present  grades  and  the  grade  changes  recommended. 
A  reduction  of  15  feet  at  the  top  of  the  hill  will  change  the  grade  on  Hayes 
Street  between  Pierce  and  Scott  Streets  from  14.55%  to  10.9%  thus  making 
possible  the  operation  of  cars  between  Fillmore  and  Divisadero  Streets.  By 
breaking  the  grade  of  Pierce  Street,  considerable  regrading  may  be  saved. 


STREET  IMPROVEMENTS 


277 


The  Montgomery  Street  alignment  I  believe  to  be  imprac- 
ticable, because  it  is  only  one  block  from  Sansome  Street  (a 
through  car  line)  and  only  two  blocks  from  Battery  Street  (a 
level  trucking  route),  but  principally  for  the  reason  that  Mont- 
gomery Street  is  too  narrow  for  any  conceivable  use  as  a  thor- 
oughfare for  heavy  car  and  vehicle  traffic.  The  long  diagonal 
alignment,  while  reaching  a  much  larger  level  area  on  the  north 
side  of  the  Columbus  Avenue  saddle,  presents  the  objection  of  an 
expensive  structure  nearly  paralleling  Columbus  Avenue,  which 
is  already  suited  to  cars  and  light  vehicle  traffic. 

The  Kearny  Street  extension  is  in  my  judgment  the  most 
practicable  alignment,  giving  a  direct  thoroughfare  from  the 
center  of  the  city  to  the  north  waterfront  midway  between  car 
lines  now  established.  Starting  at  the  important  intersection  of 
Kearny,  Columbus  and  Pacific,  the  bore  would  pass  under  Broad- 
way, emerging  at  Chestnut  Street,  where  street  widening  and 
portal  improvements  would  have  to  be  undertaken.  The  bore 
would  be  about  2700  ft.  long,  with  a  grade  of  0.66%.  At  the 
north  end  there  are  complications  with  the  Belt  line  tracks 
which  must  be  dealt  with,  and  at  the  south  end  heavy  traffic 
would  have  to  be  diverted  down  Columbus,  Pacific,  and  Jackson 
to  Battery,  or  great  congestion  would  ensue  in  crossing  Market 
Street  at  Kearny.  Pacific  Street  offers  the  most  level  diversion 
for  this  heavy  trucking. 

If  this  tunnel  were  built  by  assessment,  it  is  clear  that  owmg 
to  the  small  area  served  the  assessment  would  be  heavy,  but  it  is 
also  clear  that  with  the  increased  usage  of  the  north  waterfront, 
its  importance  would  be  greatly  enhanced.  This  project,  there- 
fore, seems  largely  a  question  of  cost. 

Noe  Valley  Tunnel  and  Cut.  In  connection  with  rout- 
ing studies,  a  tunnel  reaching  Noe  Valley  from  the  north  has 
developed  possibilities.  It  is  now  necessary  to  go  as  far  south 
as  Army  Street  before  an  entrance  grade  below  10%  is  obtained. 
This  condition  could  be  improved  by  a  one-block  tunnel  for  both 
cars  and  vehicles  in  Chattanooga  Street,  as  shown  in  Fig.  73, 
contingent  upon  the  possibility  of  the  City's  acquiring  some 
private  property  necessary,  and  reserving  for  car  lines  a  depressed 
strip  along  the  west  border  of  Mission  Park.  The  tunnel  will 
make  possible  a  through  car  line  on  Church  Street,  connecting 
Fillmore  Street  and  the  Bernal  Cut,  and  will  also  provide  an  easy 
grade  connection  with  the  upper  Mission  district  by  way  of 
Twentieth  Street.  The  legal  obstacles  pertaining  to  the  use  of  Gol- 
den Gate  Park  for  transit  purposes  will  probably  apply  to  Mission 
Park  also.  The  slight  reduction  of  park  area  is  of  small  importance 
compared  with  the  necessity  for  a  car  line  on  Church  Street. 


I 


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I'  li 


It' 


V- 


II 


278 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


NOE  VALLEY  TUNNEL  AND  CUT. 

F?EPORT     or      BION    J.  ARNOLD 
SAN  FRANCISCO      TRANSPORTATION     PROBLEM. 

SCAUC 
O  aOOFT 


FIGURE  73— NOE  VALLEY  TUNNEL  AT  CHATTANOOGA  STREET. 

The  tunnel  work  necessary  in  any  case  to  extend  a  car  line  along 
Church  Street  into  Noe  Valley  can  be  materially  reduced  by  a  slight 
diversion  around  the  hump  at  Twenty-first  Street.  Some  regrading  along  the 
westerly  border  of  Mission  Park  and  the  acquisition  of  some  private  property 
will  be  necessary,  but  a  good  grade  will  result.  The  possible  street  railway 
connections  to  the  main  line  on  Church  Street  are  indicated. 

Folsotn  Street  Tunnel,  Of  the  several  ttinnel  projects 
proposed  through  Bernal  Heights  none  at  present  appear  feasible. 
It  is  true  that  the  upper  slopes  could  be  reached  with  the  assist- 
ance of  a  viaduct  across  Army  Street,  but  a  comparatively  small 
area  is  served  in  the  end,  and  this  route  cannot  hope  to  become 
an  important  outlet  down  the  Peninsula  as  compared  with  the 
improvement  of  Bernal  Cut  as  elsewhere  discussed.  Moreover,  the 
hill  property  would  logically  have  to  bear  the  greater  part  of  the 
assessment  unless  the  route  were  extended  by  another  long  and  ex- 
pensive viaduct  into  University  Mound,  which  would  require  also 
street  widening  through  Bernal  Heights,  where  the  streets  are  now 
only  40  feet  wide.    The  Heights  is  now  served  from  the  Mission 


I 


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STREET  IMPROVEMENTS 


279 


throat,  and  can  be  reached  from  the  north  side  also  by  a  car  line. 
The  improvement  of  Bernal  Cut,  San  Bruno  Avenue  and  Islais 
Creek  Valley  offer  greater  immediate  opportunity  than  these  tunnels. 

Twentieth  Street  Tunnel  A  tunnel  on  Twentieth  Street 
has  been  proposed  extending  beneath  Potrero  Hill.  While  Twenty- 
second  Street  from  Potrero  Avenue  to  Mississippi  Street  offers  a 
more  favorable  location,  by  saving  about  one-third  of  the  length,  both 
seem  to  me  unwarranted  at  present,  although  the  future  East  Water- 
front development  may  finally  justify  the  expenditure.  First  atten- 
tion should  be  directed  to  widening  Army  Street. 

Tunnel  Under  Alamo  Square,  A  diagonal  alignment  from 
Fillmore  to  Divisadero  Street  under  the  Hayes  Street  ridge  offers 
an  excellent  low-level  route  direct  from  the  business  center  and 
Fillmore  Street  to  the  Panhandle  district.  The  length  including 
approaches  will  be  2268  ft.,  and  the  grade  3.13%.  As  this  bore 
may  be  used  as  part  of  a  future  subway  system,  the  two-level  cross- 
section  designed  for  the  Mission-Sunset  project  is  recommended 
(Figs.  67  and  68). 

Vehicle  Widths,  Measurements  of  a  large  number  of  motor 
and  other  vehicles  show  the  following  average  widths,  based  on 
over-all  measurements  at  typical  street  intersections  such  as  Sutter 
and  Polk,  and  Sutter  and  Montgomery  Streets : 


Automobiles 


Wagons 


Narrow 

5'-3"  to  5'-9" 
Runabouts  and 
light  touring  cars. 

5'-6"  to  6'-0" 
Buggies,  hacks  and 
single   deliveries. 


Medium 

5'-9"  to  r-2" 
Large  touring  and 
business  cars. 

6'-0"  to  7'-3" 
Double     deliveries, 
ice  and  coal,  lum- 
ber, produce  and 
Hght  drays. 


Wide 

r-2"  to  9'- 10" 
Auto     trucks     and 
sightseeing  autos. 

7'-y'  to  8'- 10" 
Heavy     trucking, 
low    gears,    beer 
and     garbage 
wagons. 


The  resulting  weighted  averages*  are  5'  10>4"  at  Sutter  and 
Montgomery  Streets,  and  6'  2"  at  Sutter  and  Polk  Streets;  these 
widths  have  been  used  in  the  studies  of  street  sections. 

Street  Sections,  Special  emphasis  has  been  placed,  in  dis- 
cussing the  design  of  cars,  upon  the  essential  provision  of  freeway 
for  at  least  one  line  of  moving  vehicles  between  the  car  and  vehicles 
standing  along  the  curb.  Fig.  75  illustrates  the  extreme  necessity 
for  this  method  of  facilitating  rapid  passenger  transit.  Roadways 
are  already  too  narrow,  and  to  make  matters  worse  the  majority 
of  business  streets  are  not  provided  with  rear  delivery. 

*  True   numerical   average,   giving   proper   weight   to   each   type   of   vehicle   according   to 
the  number  of  times  it  appears. 


I 


I*   % 

t 


BION  J.  ARNOLD 


r'  I 


WIDTHS 


FIGURE  74— VEHICLE  TRAFFIC  OBSERVATIONS. 
To  determine  the  average  width  and  character  of  vehicles  actually  found 
on  the  streets,  observations  were  made  at  typical  street  intersections,  viz.: 
on  Sutter  Street  at  Polk  and  Montgomery  Streets,  during  the  busiest  period 
of  the  day,  totaling  nearly  1,500  vehicles  per  hour.  While  about  half  were 
motor  vehicles,  in  each  case  the  wider  vehicles  predominated  in  Polk  street, 
indicating  its  use  as  a  heavy  traffic  thoroughfare.  Giving  due  weight  to  the 
number  of  vehicles  of  various  classes  actually  observed,  the  width  of  the 
average  vehicle  at  Polk  and  Sutter  Streets  was  found  to  be  6'  2",  and  at 
Montgomery  and  Sutter  Streets,  yiOj/2".  This  lends  special  significance 
to  the  necessity  of  immediate  reduction  of  sidewalk  width. 


STREET  IMPROVEMENTS 


281 


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INTENTIONAL  SECOND  EXPOSURE 


BION  J.  ARNOLD 


WIDTHS 


FTGURE  74  VETIULE  TRAFFIC  ODSERVATTOXS. 
To  (k-lcnniiie  the  average  widlli  and  cliaracter  of  vehicles  actually  found 
on  the  streets,  observations  were  made  at  typical  -trut  intersections,  viz.: 
on  Sutter  Street  at  Polk  and  Montgomery  Street^,  during  the  busiest  period 
of  the  day,  totaling  nearly  l,5fX)  vehicles  per  hour.  W'hile  about  half  were 
motor  vehicles,  in  each  ca.^c  the  wider  vehicle^  predoniinated  in  Polk  -trcct. 
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number  of  vehicles  of  various  classes  actually  observed,  the  width  of  the 
average  vehicle  at  Polk  and  Sutter  Street^  was  found  to  be  6'  2".  and  at 
Montgomery  and  Sutter  Streets.  5'10' S".  This  lends  special  significance 
to  the  necessity  of  immediate  reduction  of  sidewalk  width. 


STREET  IMPROVEMENTS 


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283 


FIGURE    78  —PERSPECTIVE  OF  ARCADE  STORE  FRONTS  AND  TUNNEL  PORTAL 

A  roadway  of  only  38'  9"  at  so  important  a  tunnel  entrance  as  Fillmore 
Street  is  clearly  inadequate  for  both  car  and  heavy  vehicle  traffic  that  must 
use  this  tunnel.  This  drawing  shows  an  effective  method  of  street  widen- 
ing at  tunnel  entrances  with  minimum  alteration  in  abutting  buildings  and 
without  recession  of  the  building  frontage.  The  arcading  principle  is  widely 
used  abroad  to  overcome  just  such  a  defect  in  street  plan  as  exists  here. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


For  the  average  business  street  i:he  section  shown  in  Fig.  76 
applies,  requiring  a  considerable  reduction  in  sidewalk  width.  In  the 
50- Vara  district,  the  sidewalks  on  a  number  of  streets  (Ellis,  Eddy, 
Turk,  McAllister,  etc.)  have  already  been  reduced;  and  this  work, 
now  covered  by  ordinance,  should  be  continued.  A  list  of  recom- 
mended changes  is  appended  (Table  32). 

Upon  streets  where  all  traffic  is  heavy,  such  as  tunnel  approaches, 
there  is  no  recourse  but  widening.  However,  this  work  can  be  most 
economically  effected  by  arcading  the  store  fronts  in  the  manner 
shown  (Fig.  77)  and  the  perspective  (Fig  78)  representing  Fillmore 
Street  south  of  the  tunnel  portal.  Here  the  effect  of  street  widening 
is  obtainable  with  the  same  building  lines. 

Automobile  Stand.  Stockton  Street  is  two  feet  and  Powell 
Street  one  foot  narrower  than  the  usual  streets  of  the  50-Vara  dis- 
trict; and  considerable  traffic  congestion  is  caused  in  this  vicinity 
by  sightseeing  and  other  autos  for  hire.  Fig.  79  is  a  plan  for  a  stand 
for  these  vehicles  at  Union  Square.     By  narrowing  the  sidewalks 


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FIGURE  79— AUTO  STAND  AT  UNION   SQUARE. 

The  blackened  area  represents  the  space  recommended  for  this  purpose. 
New  walkways  within  the  park  will  compensate  for  the  proposed  reduction 
in  the  width  of  the  present  walks,  while  the  width  of  roadway  is  preserved; 
or  the  park  frontage  can  be  receded  6^  to  7  feet  as  an  alternative.  The  devel- 
opment of  a  hotel  center  on  Union  Square  and  the  construction  of  the 
Stockton  Street  tunnel,  which  is  two  feet  narrower  than  the  standard  50-Vara 
street,  necessitates  some  provision  for  automobile  storage. 


STREET  IMPROVEMENTS 


285 


as  indicated,  these  vehicles  can  be  placed  inside  the  curb  lines  pro- 
posed for  the  adjacent  blocks.  New  walks  within  the  Park  may  be 
provided  as  shown,  or  the  present  sidewalks  moved  inward.  On 
account  of  the  tunnel  traffic  anticipated  the  Stockton  Street  side 
of  the  Square  should  not  be  used  for  this  purpose,  but  the  sidewalks 
should  be  reduced  nevertheless  to  secure  additional  roadway. 

Street  Wideninsr 

The  Embarcadero.  The  recession  of  the  projecting  corner  of 
Sacramento  and  East  Streets  should  be  immediately  undertaken, 
whether  or  not  the  more  ambitious  plan  of  equalization  of  frontage 
is  taken  up  as  outlined  in  Chapter  13.  This  project  has  been  pre- 
sented on  several  previous  occasions,  but  defeated  owing  to  cir- 
cumstances in  which  its  merits  were  not  the  determining  factor.  But 
in  view  of  the  probable  harbor  development  and  the  resulting 
increase  in  the  value  of  the  property  involved,  serious  considera- 
tion should  be  given  at  this  time  to  the  equalization  project. 
Block  D  is  particularly  unfortunate,  in  that  it  converges  east- 
bound  traffic  at  the  most  undesirable  point,  viz.,  opposite  the 
ferries  and  cabstands.  This  congestion  is  rapidly  becoming  more 
and  more  acute. 

Army  Street  should  be  widened  to  100  ft.  east  of  Potrero 
Avenue,  because  of  its  importance  as  a  cross-town  thoroughfare. 
It  is  the  only  level  street  south  of  Sixteenth  Street  connecting  the 
Mission  district  with  the  waterfront. 

San  Bruno  Avenue  should  be  straightened  and  widened  to  100 
ft.  from  Army  Street  at  least  to  Crescent  Avenue.  Although 
only  60  ft.  wide,  it  is  the  principal  thoroughfare  connecting  the 
Mission  district  with  the  region  lying  south  and  east  of  Bernal 
Heights. 

Lcese  Avenue  {formerly  Holly  Street)  will  provide  a  most 
direct  route  from  the  Mission  district  to  University  Mound.  It 
is  now  less  than  45  ft.  wide  and  should  be  widened  to  70  ft.  or 
more  when  the  street  is  extended  to  Silver  Avenue  and  Cam- 
bridge Street  by  viaduct  over  Islais  Creek. 

Entrance  to  Sunset  District.  In  recommending  the  alignment 
for  the  Mission-Sunset  tunnel,  the  westerly  portal  was  located 
at  Frederick  and  Cole  Streets,  but  with  the  expectation  that  so 
important  a  thoroughfare  as  a  tunnel  should  be  accorded  the 
right-of-way  through  the  narrow  entrance  throat  to  the  Sunset 
district  between  Golden  Gate  Park  and  the  northerly  slopes  of 
Blue  Mountain.  Of  the  three  streets  available  at  this  point — 
Frederick  Street,  Carl  Street,  and  Parnassus  Avenue — only  Fred- 


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1 


286 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


erick  Street  provides  a  low-level  entrance  to  the  Sunset  district 
at  this  point.  Therefore,  in  the  not  distant  future,  it  will  become 
necessary  to  abandon  the  blocks  intervening  between  Frederick 
Street  and  Golden  Gate  Park,  with  the  object  of  directly  extend- 
ing Lincoln  Way  to  Stanyan  Street,  which  may  possibly  be  done 
by  an  exchange  of  frontage,  at  the  same  time  widening  the  throat. 

Improvement  of  Division  Street.  Division  Street  between 
Ninth  and  Eleventh  Streets  is  but  50  ft.  wide.  But  the  City  owns  con- 
siderable property  in  this  vicinity  forming  the  old  Mission  Creek  bed, 
and  this  may  be  utilized,  in  part  at  least,  to  widen  this  thorough- 
fare, and  provide  connections  with  Twelfth  and  Fourteenth  Streets 
on  the  west  and  Berry  Street  on  the  east  and  thus  to  The  Em- 
barcadero. 

Street  Extensions 

Van  Ness  Avenue.  Two  plans  for  street  extension  in  the  vicin- 
ity of  Twelfth  and  Market  Streets  have  been  proposed:  (a) 
Mission  Street  extended  to  Market  Street,  opposite  the  inter- 
section of  Page  and  Franklin  Streets;  (b)  Van  Ness  Avenue  ex- 
tended south  to  the  intersection  of  Twelfth,  Mission  and  West 
Mission  or  Otis  Streets.  Of  these  two  plans,  I  consider  the 
latter  much  preferable  and  an  urgent  necessity  while  the  value 
of  improvements  on  the  intervening  property  is  practically  neg- 
ligible. Owing  to  certain  transit  developments  in  this  particular 
district,  this  intersection  will  unquestionably  become  the  most 
important  transit  center  in  the  City,  especially  by  reason  of  the 
radial  street  plans  in  this  vicinity.  Direct  routing  to  Harbor  View 
from  the  Mission  has  even  now  created  the  demand. 

Contour  Extension  of  Market  Street.  As  previously  recom- 
mended, the  extension  of  Market  Street  around  the  slopes  of 
Twin  Peaks  and  into  Corbett  Road  is  necessary  to  supplement  the 
rapid  transit  tunnel  project,  and  should  be  carried  out  while  the 
property  is  relatively  inexpensive.  Its  alignment  and  grade 
should  correspond  to  that  of  the  tunnel  as  far  as  Eureka  Street, 
and  then  continue  by  such  route  as  will  give  the  most  favorable 
grade  without  sacrificing  directness.  The  thoroughfare  could  be 
reduced  to  85  ft.  beyond  Eureka  Street,  with  sidewalks  not  over 
12  ft.  in  width.  On  the  hillsides  a  two-level  method  shown  in 
Fig.  80  may  be  employed  to  advantage,  giving  a  wide  street  with 
minimum  cut  and  fill.  In  the  Punnett  Plan  for  improving  the 
Twin  Peaks  District,  it  has  been  suggested  that  the  proposed 
extension  should  join  Falcon  Avenue  just  south  of  Romain  Street. 
In  that  event  the  widening  and  extension  of  Falcon  Avenue  to 
Corbett  Avenue  and  the  widening  and  straightening  of  Corbett 
Avenue  would  become  part  of  the  project. 


STREET  IMPROVEMENTS 


287 


thoroughfare:  cross  stCTioros 

HILLSIDE       STREETS. 

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FIGURE  80— HILLSIDE  STREET.  PLANS  A    AND    B. 

The  development  of  contour  streets  of  reasonable  width  frequently  neces- 
sitates terracing.  These  diagrams  show  two  methods  of  treatment  by  equaliz- 
ing cut  and  fill.  With  the  usual  method  of  grading  as  shown  above,  abutting 
property  is  either  considerably  above  or  below  street  grade;  but  by  the  use 
of  a  retaining  wall  in  the  center  as  in  the  lower  diagram,  all  property  is  on 
the  street  level  and  an  opportunity  is  provided  for  separating  various  classes 
of  traffic. 


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288 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Jefferson  Street  Waterfront.  In  view  of  the  difficulty  in 
securing  an  unobstructed  entrance  through  Beach  Street  to  a 
tunnel  under  Fort  Mason  previously  recommended,  the  alterna- 
tive development  of  Jefferson  Street  from  Columbus  Avenue 
under  Fort  Mason  to  the  intersection  of  Beach  and  Laguna 
Streets  may  be  adopted.  As  Jefferson  Street  is  now  under  water, 
the  excavation  from  the  Fort  Mason  tunnel  could  be  used  ef- 
fectively for  filling  and  improving  the  waterfront. 

Removal  of  Cemeteries.  If  definite  steps  are  taken  to  open  the 
five  cemetery  tracts  within  the  city  limits  for  residential  purposes, 
Sutter  Street  should  be  extended  to  Euclid  Avenue  by  a  new  con- 
tour street  presumably  passing  to  the  south  of  the  intervening  hill. 
This  would  permit  the  remaining  areas  to  be  developed  freely  on 
the  contour  street  plan.  Incidentally,  St.  Josephs  Avenue,  now  100 
ft.  in  width,  could  be  relocated  to  advantage  possibly  as  an  exten- 
sion of  Baker  Street.  It  is  now  of  little  value  in  that  it  is  only  100 
ft.  distant  from  Broderick  Street,  upon  which  all  the  buildings 
front,  so  that  the  cemetery  tract  when  improved  would  have  to  face 
the  rear  of  these  buildings. 

Eighth  Street.  Should  be  extended  in  the  near  future  from  the 
intersection  of  Townsend  and  Division  Streets  through  two  inter- 
vening blocks  to  Fifteenth  Street.  The  provision  for  this  extension 
is  quite  evident  from  the  fact  that  Blocks  134,  167  and  201  already 
fall  in  line  with  the  western  property  line  of  Eighth  Street.  At 
the  present  time,  the  improvements  upon  this  intervening  property 
are  relatively  inexpensive.  This  district  could  therefore  be  pro- 
vided with  a  direct  thoroughfare  from  Market  Street  and  the  Civic 
Center  to  Sixteenth  Street,  which  is  the  most  important  east  and 
west  low-level  thoroughfare  north  of  Porto  Hill.  Moreover,  the 
importance  of  this  route  is  enhanced  by  the  construction  of  the 
Southern  Pacific  overhead  viaduct  on  Sixteenth  and  Kentucky 
Streets.  Eighth  Street  appears  to  be  the  only  remaining  street  per- 
pendicular to  Market  Street  which  can  be  cut  through  to  the  Po- 
trero  without  excessive  expenditure  for  the  intervening  property, 
and  will  be  of  great  value  in  facilitating  direct  transit  service. 

Berry  Street.  It  is  most  important  that  Berry  Street  be  en- 
tirely relieved  of  its  present  encumbrances  from  Third  Street  to 
The  Embarcadero,  thus  giving  a  direct  trucking  street  from  the 
warehouse  and  manufacturing  district  at  the  north  end  of  Potrero 
Hill  directly  to  and  around  the  waterfront.  This  street  is  also 
needed  as  an  exit  for  freight  deliveries  from  the  Southern  Pacific 
yards,  and  especially  to  the  lower  Mission  through  Division  Street. 

Potrero  Avenue  and  Twenty -sixth  Street.  Potrero  Avenue,  oc- 
cupying an  important  position  as  an  outlet  thoroughfare  to  the  south, 


STREET  IMPROVEMENTS 


289 


has  a  width  of  100  ft.,  a  grade  of  not  over  4^^%,  and  leads  directly 
into  the  gap  between  Potrero  Hill  and  Bernal  Heights.  But  it 
will  lose  much  of  its  importance  as  a  thoroughfare  until  extended 
south  to  connect  with  San  Bruno  Avenue  and  the  important  cross- 
town  route— Army  Street— intersecting  at  this  point. 

Ocean  Avenue  from  Onondaga  Avenue  to  Mission  Street  is  not 
open  to  public  use,  although  existing  upon  the  official  maps.  It 
should  be  developed  as  a  thoroughfare  for  transit  service  via  Mis- 
sion to  the  Beach. 

Dolores  Boulevard.  In  connection  with  the  improvement  of 
Bernal  Cut,  Dolores  Boulevard  should  be  extended  to  Mission 
Street,  thus  diverting  from  the  latter  thoroughfare  a  portion  of  its 
traffic. 

New  Streets.  On  account  of  the  steep  grades  on  Crescent 
Avenue  between  Bache  and  Banks  Streets,  it  is  recommended  that 
a  new  contour  street  be  laid  out  continuing  westerly  the  lower  por- 
tion of  Crescent  Avenue  parallel  with  the  Ocean  Shore  Railway  to 
a  point  in  the  old  St.  Mary's  College  grounds,  there  connecting  with 
Bosworth  Street,  St.  Mary's  Avenue  and  Leese  Avenue  (formerly 
Holly  Street).  This  new  thoroughfare,  which  might  be  appropri- 
ately named  Islais  Avenue,  would  be  available  for  car  lines. 

A  new  street  should  be  developed  extending  from  Bosworth 
and  Lyell  Streets  to  San  Jose  and  Diamond  Streets,  and  parallel 
with  the  Southern  Pacific  right-of-way.  This  will  provide  a  di- 
rect outlet  to  Mission  Street  of  both  the  San  Jose  Avenue  and 
Sunnyside  Avenue  Imes,  also  connecting  with  the  proposed  new 
contour  street  (Islais  Avenue)  mentioned  above. 

By  following  a  ravine  running  diagonally  from  Woolsey  Street 
tc  Wayland  Street,  a  good  grade  will  result,  for  lines  serving 
University  Mound  from  the  east. 


For  Car  Line  Extensions 

Falcon  Avenue  from  Twenty-third  Street  to  Corbett  Avenue. 

Capp,  Howard  and  Treat  Streets  to  Army  Street. 

Capp  Street  to  Fourteenth  Street. 

Alpine  Street  to  Tilden  Street. 

Randolph  Street  to  Junipero  Serra  Boulevard. 

Pierce  Street  to  Hamilton  Square. 

Twelfth  Street  to  Division  Street. 

Fourteenth  Street  to  Division  Street. 

Ninth  Avenue  through  City  property  to  Forest  Hill. 

Taraval  Street  to  Twin  Peaks  tunnel  portal. 

Vicente  Street  to  Twin  Peaks  tunnel  portal.  (Alternative.) 


1 


b 


290 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Wolfe  Street  to  Montcalm   Street    (contour  street). 
Brewster  Street  to  Powhattan  Street  (contour  street). 

General.  A  number  of  further  street  extensions,  while  perhaps 
not  essential  for  transportation,  are  nevertheless  desirable. 

Waller  Street.  Through  Buena  Vista  Park  to  Buena  Vista  Ter- 
race, at  an  average  grade  of  3.4%. 

Seward  Street.  From  Danvers  Street  to  Eureka  Street,  provid- 
ing an  easy  grade  highway  between  the  Eureka  and  Noe  Valleys, 
and  connecting  with  the  proposed  Market  Street  extension. 

Seventh  Avenue  Extension  Boulevard,  As  mentioned 
in  Chapter  11,  referring  to  transfer  connections  at.  the  Laguna 
Honda  Station  of  the  Twin  Peaks  tunnel,  Seventh  Avenue  should  be 
developed  as  a  supplemental  cross-town  boulevard  down  the  Penin- 
sula connecting  Golden  Gate  Park  with  the  proposed  extension  of 
Market  Street  and  the  Corbett  Road.  It  should  be  widened  to 
100  ft.  throughout,  and  extended  by  means  of  an  open  cut  run- 
ning beneath  the  present  bend  in  Dewey  Boulevard. 

Resuhdivision  of  Hill  Property,  The  blunder  of  carrying 
a  rectangular  system  of  streets  over  steep  grades  has  rendered 
many  districts  practically  inaccessible.  For  this  reason  every  effort 
should  be  made  to  resubdivide  these  tracts  with  streets  laid  out  with 
some  regard  to  the  contours  so  that  transit  service  may  be  estab- 
lished thereto.  The  subdivision  of  Forest  Hill  and  St.  Francis 
Wood  tracts  are  examples  of  the  possibilities  in  this  respect. 

Regrades 

Sansome  Street.  Any  plan  to  change  the  levels  of  Sansome 
Street  should  also  include  regrading  Pacific  and  Broadway.  Fig. 
81  is  an  isometric  view  of  the  regrade  which  is  recommended.  In 
this  plan,  a  direct  low-level  route  to  North  Beach  via  Sansome  Street 
rmay  be  provided,  and  the  grades  leading  from  the  waterfront  to 
the  proposed  Broadway  tunnel  will  be  greatly  improved. 

Tzvcntieth  Street.  The  13%  grade  on  Twentieth  Street 
between  Hampshire  and  Potrero  Avenue  can  be  reduced  to  11.4% 
by  allowing  the  break  in  grade  to  be  made  at  the  curb  lines  instead 
of  the  property  lines.  This  departure  from  the  usual  practice  is 
justified  because  of  the  importance  of  securing  the  most  direct 
street  railway  connections  at  this  point.  At  Hampshire  Street  it 
will  be  necessary  to  make  changes  in  the  sidewalk  levels  also  to 
eflfect  proper  drainage. 

Arkansas  Street.  Between  Twentieth  and  Twenty-second  has  a 
broken  grade  with  a  maximum  of  15.2%.  A  cut  of  eight  feet  at  the 
*'hump"  will  result  in  a  grade  of  12%.     A  maximum  grade  of  the 


STREET  IMPROVEMENTS 


291 


line  exclusive  of  this  block  is  12.5%,  and  it  will  serve  the  summit  of 
Southern  Heights,  which  is  now  entirely  without  transportation. 

Falcon  Avenue,  between  View  Avenue  and  Romain  Street, 
should  be  graded  to  not  over  10%  ;  also  Twenty-eighth  Street  be- 
tween Burnett  Avenue  and  Bellevue  Street. 

Balboa  Street.  To  secure  a  practicable  grade  in  Balboa 
Street  it  will  be  necessary  to  raise  the  level  of  Twenty-third  Street 
12  ft.,  or  to  construct  a  viaduct. 


l4.2«-tLCVATlON     IN  rCCT 


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fzen^otje. 


ISOMETRIC  VIEW  OF 
SANSOME  ST.  REGRADE 

(FIGURES  IN  P^^RENTHESIS  ARE  PROPOSED) 

FIGURE  81 -ISOMETRIC  VIEW  OF  SANSOME  STREET  REGRADE. 
The  fullest  utilization  of  Sansome  Street  as  the  first  Jow-grade  street  to 
The  Embarcadero  east  of  Telegraph  Hill  is  evidently  desirabe;  a  so  the 
ininrovement  of  the  entrance  thoroughfare  to  the  Broadway  tunnel.  The 
fur^i^e?  represent  the  present,  and  the  dotted  lines  the  proposed  street 
grades  Both  Broadway  and  Sansome  Street  should  be  included  in  the  im- 
provement. As  an  alternative,  Montgomery  Street  may  be  bridged  over 
at  Broadway  to  the  heavy  regrade  shown. 

Rapid  Transit  Parking,  Where  the  width  of  thorough- 
fares and  vehicle  traffic  permit,  a  type  of  construction  shown  in 
Plate  18,  is  recommended,  the  idea  of  which  is  to  facilitate  rapid 
car  operation  without  interference  with  passing  vehicles.  This 
plan  is  in  highly  successful  operation  in  Boston  and  other  cities. 
It  combines  the  attractive  scheme  of  the  present  Dolores  Street 
parking  with  the  most  effective  transit,  and  can  be  applied  to 
advantage  on  Van  Ness  Avenue  north  of  Geary  Street,  Geary 
Street  west  of  Presidio  Avenue,  Arguello  Boulevard,  Masonic 
Avenue  and  Sunnyside  Avenue.  The  parking  curbs  may  be  used 
as  a  step  to  and  from  the  car  platforms. 


1'  ^'"1 


292 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Park  Crossings,  have  become  a  vital  necessity  for  the 
interconnection  of  the  Richmond  and  Sunset  districts,  not  only 
for  car  lines,  but  also  for  all  classes  of  vehicles,  for  precisely  the 
same  reasons  that  there  are  demands  for  crosstown  car  lines  in 
other  parts  of  the  City.  Three  different  ways  of  carrying  out 
this  crossing  plan  are  shown  in  Fig.  82 : 

1.  Double  track  railway  line  along  the  surface,  shielded  by 
an  earth  embankment  with  trees  and  thick  shrubbery. 

2.  A  depressed  roadway  for  both  cars  and  vehicles,  with 
overhead  bridge  crossings. 

3.  Depressed  roadway  for  cars  and  for  vehicles  respectively 
at  different  points. 

The  first  plan  is  the  most  suitable  for  reaching  points  of 
heaviest  traffic  demand,  such  as  the  music  pavilion.  The  maximum 
convenience  to  Park  patrons  will  result  from  having  it  entirely  on 
the  surface.  At  the  few  road  crossings  existing,  a  cautionary 
stop  could  insure  the  necessary  safety.  The  contours  between 
Lincoln  Way  and  Fulton  Street  indicate  that  the  best  crossing 
may  be  obtained  from  Ninth  Avenue  on  the  south  to  Tenth 
Avenue  on  the  north,  with  a  slight  detour  around  the  music 
pavilion.  This  line  should  be  constructed  first.  Next,  a  railway 
crossing  would  seem  to  be  necessary  in  the  vicinity  of  the  stadium, 
as  recommended  in  connection  with  the  extensions  of  the  Geary 
Street  road,  in  Thirty-seventh  Avenue ;  and  later  a  vehicle 
crossing  in  the  vicinity  of  Twentieth  Avenue  on  the  south  and 
Twenty-fourth  Avenue  on  the  north,  as  determined  by  surveys. 

The  large  expense  of  tunnels  under  the  Park  does  not  appear 
warranted  ct  this  time,  as  this  plan  of  depressed  cut  is  satisfactory 
in  other  cities,  a  prominent  example  being  Central  Park,  New 
York,  which  is  entirely  typical  of  the  situation  here. 

Panhandle  Crossing.  Masonic  Avenue  from  Waller  Street 
is  100  feet  wide,  and  could  be  made  part  of  the  boulevard  system 
into  Sunset,  with  the  central  area  parked  for  the  car  lines  as  sug- 
gested for  Van  Ness  Avenue  (Plate  18). 

Suggested  General  Ordinances.  To  improve  the  car 
service,  the  traffic  ordinances  could  be  amended  with  advantage 
in  the  following  particulars: 

1.  Except  on  slopes  over  5%  outside  the  fire  limits,  all  stand- 
ing vehicles  should  be  placed  with  wheel  tires  next  the  curb. 

2.  Vehicles,  especia'lly  slow  moving  ones,  should  not  be  per- 
mitted upon  car  tracks,  except  where  passing  others  standing 
along  the  curb  or  where  streets  are  otherwise  impassable. 


STREET  IMPROVEMENTS 


293 


PROPOSED  THOROUGH  FARE:.'=i   ATROSSTHE   PARK 

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SCALE. 

o  torr. 


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POR   CARS   AND  VCHICUCS 


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FIGURE  82— PARK  CT^OSSINGS. 
Three  methods  are  shown— (a)  with  roadway  removed  from  sight 
by  shrubbery  which  also  tends  to  reduce  noise;  (b)  by  equalized  cut  and 
embankment;  (c)  with  retaining  wall  instead  of  graded  slopes,  bridges 
and  stairways  being  necessary  at  the  few  intersecting  drives.  The  ex- 
pense of  tunnels  hardly  seems  warranted  in  view  of  these  alternatives. 
The  separation  of  two  such  important  sections  of  the  city  as  Richmond 
and  Sunset  by  three  miles  of  continuous  parking  requires  some  form  of 
crossing  for  both  cars  and  vehicles. 


294 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


3.  Street  cars  should  be  exempt  from  present  speed  limita- 
tions of  vehicles. 

4.  Loading  and  unloading  vehicles  backed  against  the  curb 
shouild  not  be  permitted  during  rush  hours  upon  any  street  in 
the  downtown  district  with  car  service. 

5.  The  contracted  space  between  the  safety  stations  and  the 
curb  should  be  kept  exceptionally  clear  of  standing  vehicles  at 
all  times. 

6.  Vehicles  should  not  stand  nearer  than  one  car  length  to  a 
street  intersection,  i.  e.,  50  feet  from  the  property  line. 

7.  Articles  relating  to  width  of  vehicles,  speed  regulation  at 
crossings,  vehicles  passing  cars  loading  and  unloading,  and 
vehicles  making  turns,  should  be  rigidly  enforced,  and  ''width  of 
vehicles"  should  be  interpreted  to  include  the  load  carried. 


CHAPTER  13 

TRANSPORTATION  ON  THE  HARBOR 

FRONT 

FERRY  TERMINAL  AND  OTHER  IMPROVEMENTS 

Hans  for  Permanent  Relief  of  Congestion 
Minimum  Improvements  to  be  Considered 

Traffic  congestion  at  the  Ferr}f  has  reached  a  point  where  the  present 
terminal  facilities  for  street  cars  are  taxed  to  their  utmost,  and  Tvith  the  addi- 
tion of  two  more  car  lines — Sutter  and  Ceary  Streets — to  the  main  terminal, 
increased  or  at  least  improved  facilities  in  the  Jvay  of  loops  and  storage 
tracks  will  he  imperative.  In  this  chapter,  the  growth  and  variation  in  com- 
muter ferry  traffic  is  analyzed  with  reference  to  the  necessary  car  service, 
and  detailed  recommendations  are  made  for  alternative  elevated  terminals 
plans  calculated  to  provide  permanent  relief  by  increasing  the  capacity, 
supplemented  by  storage  tracks  for  cars  awaiting  the  arrival  of  a  ferryboat 
Service  for  the  proposed  extensions  of  the  Ferry  building  is  considered; 
also  temporary  improvement  plans,  and  provision  for  the  accommodation 
of  pedestrian  and  vehicle  traffic.  The  plans  for  the  relief  of  Lower 
Market  Street,  Chapter  6,  contemplate  these  terminal  improvements  al- 
though not  discussed  there  in  detail. 

In  recommending  improvements  in  transportation  facilities  af- 
fecting the  State  property  on  the  Harbor  front,  it  is  understood,  of 
course,  that  the  jurisdiction  of  the  City  of  San  Francisco  theoretic- 
ally ends  at  the  west  line  of  The  Embarcadero,  and  that  the  railway 
terminals  are  only  permitted  to  occupy  the  Ferry  frontage  as  an 
accommodation  to  trans-bay  passengers.  However,  the  interests  of 
the  City  and  State  are  in  my  judgment  so  intimately  involved  in  the 
matter  of  transportation  that  in  reality  the  State  is  justly  bound  to 
co-operate  with  the  City  and  assist  in  carrying  out  any  reasonable 
plans  necessary  for  conserving  the  interests  of  the  traveling  public. 

After  only  a  few  years  of  respite  from  the  congestion  of  the  old 
turn-table,  the  problem  of  the  Market  Street  ferry  terminal  has 
again  become  serious,  due  to  the  concentration  of  the  entire  com- 
muter traffic  at  a  single  point  of  delivery,  with  every  prospect  of  a 
continual  increase. 

This  condition  will  be  further  aggravated  by  additional  loop 
traffic  from  the  Geary  and  Sutter  Street  lines  operating  on  the  outer 
Market  Street  tracks. 


^tl: 


H, 


m 


296 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Unless  terminal  improvements  are  speedily  undertaken,  this  in 
my  judgment  will  create  a  condition  of  congestion  so  much  worse 
than  at  present  as  to  simply  force  the  withdrawal  of  part  of  this 
additional  servfce  to  the  Ferry.  In  the  plans  recommended  for  hand- 
ling lower  Market  Street  traffic.  Chapter  6,  the  Ferry  terminal  was 
not  discussed,  but  these  plans  were  drawn  up  with  such  improve- 
ments in  view,  and  are  largely  dependent  upon  them  for  effective 
results. 

Reference  has  been  freely  made  to  a  previous  report  of  engi- 
neers for  the  Federated  Harbor  Improvement  Association  on  the 
development  of  San  Francisco  Harbor.  Therein  is  recommended  a 
plan  for  an  elevated  loop  structure  similar  to  the  alternative  plan 
proposed  by  me,  except  that  four  tracks  were  to  be  used  with  Mar- 
ket Street  widened  20  feet  and  the  corners  at  East  Street  rounded 
off.  This  plan  contemplated  that  surface  car  traffic  should  be  re- 
moved entirely  from  The  Embarcadero,  except  that  running  gen- 
erally in  a  north  and  south  direction. 

CONCLUSIONS  AND  RECOMMENDATIONS 

1.  From  a  careful  study  of  existing  conditions  and  the  reason- 
able requirements  of  increasing  traffic,  I  fail  to  find  any  satisfactory 
solution  of  the  Ferry  terminal  problem  that  can  be  carried  out  on 
the  surface  within  the  existing  street  lines.  A  comprehensive  plan 
for  the  equalization  of  property  frontage  along  The  Embarcadero 
should  therefore  be  put  into  effect  extending  from  Mission  Street 
to  Pacific  Street  by  means  of  which  a  Ferry  Plaza  of  adequate  di- 
mensions may  become  available  for  accommodating  an  elevated  in- 
cline structure  leading  to  the  second  story  of  the  Ferry  building; 
this  to  be  accomplished  presumably  through  the  purchase,  re-sub- 
division, improvement  and  resale  of  property  affected. 

2.  This  elevated  terminal  structure  should  be  built  with  incline 
approaches  located  off  from  Market  Street  within  this  plaza  with 
an  elevated  two-track  loop,  fixed  car  berths,  communicating  ramps, 
and  reservoir  spur  tracks  at  each  end  of  the  present  building  ex- 
tending back  to  the  rear  concourse.  These  inclines  may  be  con- 
cealed within  an  artistic  peristyle  structure  forming  the  "Water 
Gate"  of  San  Francisco.  ' 

3.  As  an  alternative  plan,  it  will  be  necessary  to  build  an  ele- 
vated approach  in  Market  Street,  commencing  at  Spear  Street,  with 
a  two-track  loop  communicating  with  the  second  floor  of  the  Ferry 
building.  Market  Street  at  present  can  accommodate  only  the  ele- 
vation of  the  two  center  tracks.    Future  four-tracking  would  neces- 


FERRY  TERMINAL  IMPROVEMENTS 


297 


sitate  the  recession  of  the  southerly  building  line  of  Market  Street 
from  Spear  to  East  Streets. 

4.  In  any  event,  the  recession  of  the  protruding  corner  of  Sac- 
ramento and  East  Streets  is  essential  to  this  alternative  or  any  other 
plan  not  involving  the  equalization  of  frontage,  owing  to  the  serious 
obstruction  offered  by  the  present  cable  loop. 

5.  In  view  of  the  contemplated  extension  of  the  present  struc- 
ture loading  and  unloading  should  not  be  concentrated  at  a  single 
point  of  entrance  to  the  Ferry  building,  but  should  be  distributed 
along  the  building  frontage  as  much  as  possible. 

6.  Separate  passageways  for  entrance  and  exit  should  be  pro- 
vided, to  avoid  interference  of  passengers  moving  in  opposite  direc- 
tions. A  system  of  ticket  booths  and  guide  railings  would  greatly 
facilitate  rapidity  of  loading,  especially  on  the  upper  deck,  where 
the  platforms  could  be  enclosed  without  difficulty. 

7.  On  all  terminals,  both  surface  and  elevated,  sufficient  reser- 
voir capacity  should  be  available  for  permitting  cars  to  lay-over 
for  incoming  boats,  without  obstructing  the  through  trunk  lines. 

8.  A  system  of  fixed  berths  or  stopping  places  for  cars  should 
form  a  part  of  any  terminal  system,  with  an  electric  signal  system 
operated  by  the  dispatcher  indicating  definitely  just  where  incoming 
cars  will  berth,  in  time  to  enable  passengers  to  reach  the  berth  de- 
sired. 

9.  Foot-passenger  ways  should  be  built  into  the  elevated  struc- 
ture in  order  to  permit  pedestrians  to  cross  The  Embarcadero  with- 
out encountering  the  traffic  thereon.  While  a  foot-bridge  alone 
would  relieve  the  present  surface  congestion  somewhat,  it  does  not 
form  any  real  solution  of  the  problem  as  a  whole,  and  its  supports 
would  be  an  additional  obstruction  in  the  traffic  way. 

10.  In  the  alternative  plan,  while  the  cars  using  the  outer  track 
could  most  logically  continue  to  the  Ferry  on  the  surface  (leaving 
all  the  inside  track  cars  for  the  elevated  loop),  it  is  practicable  to 
effect  any  desirable  division  of  traffic  between  surface  and  elevated 
loops  by  means  of  cross-overs  in  Market  Street. 

11.  In  the  event  no  elevated  structure  is  now  possible.  I  con- 
sider it  absolutely  necessary  that  all  three  surface  terminals  should 
be  enlarged  to  provide  reservoir  capacity  and  fixed  loading  berths, 
with  dispatching  by  electric  signal  as  later  discussed.  It  is  prob- 
able that  multiple  berthing  (that  is,  two  or  more  cars  operated  as  a 
unit)  will  produce  the  best  results,  especially  in  view  of  the  estab- 
lishment of  two-car  stops  in  Market  Street. 

12.  The  great  volume  of  passenger  and  vehicle  traffic  at  the 
throat  of  the  Market  Street  loops  warrants  the  immediate  establish- 


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FERRY  TERMINAL  IMPROVEMENTS 


299 


ment  of  traffic  regulation ;  one  careless  driver  should  not  be  allowed 
to  cause  serious  delay  to  such  an  important  artery  of  travel.  With 
effective  policing  and  more  prompt  placing  and  dispatching  of  cars 
than  at  present,  car  movement  could  be  greatly  facilitated.  Practic- 
ally no  responsibility  should  be  left  to  the  motormen  in  the  terminal, 
except  to  avoid  accidents. 

13.  A  track  connection  in  East  Street  may  prove  useful  (if  4- 
track  operation  permits)  to  complete  a  loop  for  the  relief  of  Market 
Street  during  rush  hours ;  certain  cars  to  be  routed  via  Market  in- 
bound to  East,  to  Mission  outbound,  and  return  to  Market  Street 
via  Fifth,  Ninth,  Tenth,  or  Twelfth  Streets. 

14.  The  absence  of  passenger  transportation  along  the  Harbor 
Front,  becoming  more  and  more  acute  as  development  proceeds, 
will  in  my  judgment  necessitate  electric  service  in  addition  to  steam 
switching  tracks.  The  present  Belt  line  track  in  front  of  the  Ferry 
building  should  therefore  be  available  for  through  electric  service, 
with  provision  for  future  double-tracking. 

15.  Electric  service  tracks  to  be  ultimately  carried  around 
The  Embarcadero  from  Fort  Mason  to  the  Channel  should  be  located 
next  to  the  pier  wall  rather  than  on  the  opposite  side;  this  posi- 
tion will  be  more  convenient  and  incur  less  obstruction.  At  the 
Ferry  future  Belt  line  tracks  may  be  so  located  as  to  serve  their 
purpose  without  interfering  with  the  elevated  terminal  as  in  the  case 
of  the  present  track  when  handling  large  steam  road  equipments. 
Any  future  branches  from  the  Belt  line  tracks  to  wharves  located 
close  to  the  Ferry  terminal  should  curve  away  from  the  terminal 
instead  of  towards  it,  to  avoid  the  obstruction  of  the  most  important 
entrance  throat. 

16.  Electric  parcel  and  express  delivery  through  the  Ferry 
from  the  various  tributary  car  lines  will  very  probably  materialize 
in  the  near  future ;  and  in  the  layout  of  the  two  annexes  provision 
might  be  made  to  advantage  for  routing  express  cars  directly 
into  the  building  for  this  purpose. 

SUPPLEMENTAL  DISCUSSION 

Through  the  courtesy  of  the  Southern  Pacific,  Key  Route,  and 
Northwestern  Pacific  lines,  complete  traffic  counts  have  been  made 
of  commuter  travel  to  and  from  San  Francisco,  indicating  its  gen- 
eral characteristics  and  rate  of  growth.  The  essential  results  of 
these  voluminous  records  are  presented  in  the  accompanying  exhib- 
*  its.  Figs.  84  to  86. 

Growth  in  Commuter  Travel.      Prior   to   the   fire   a   steady 
growth  in  travel  from  the  Alameda  County  commuters  took  place, 


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FERRY  TERMINAL  IMPROVEMENTS 


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mcnt  of  traffic  re^^iilation ;  one  careless  driver  should  not  be  allowed 
to  cause  serious  delay  to  such  an  important  artery  of  travel.  W  ith 
effective  policing  and  more  prompt  placing  and  dispatching  of  cars 
than  at  present,  car  movement  could  be  greatly  facilitated.  Practic- 
ally no  responsibility  should  be  left  to  the  motormen  in  the  terminal, 
except  to  avoid  accidents. 

13.  A  track  connection  in  East  Street  may  prove  useful  (if  4- 
track  operation  permits)  to  complete  a  loop  for  the  relief  of  :Market 
Street  during  rush  hours ;  certain  cars  to  be  routed  via  Market  in- 
bound to  East,  to  :^[ission  outbound,  and  return  to  Market  Street 
via  Eifth,  Ninth,  Tenth,  or  Twelfth  Streets. 

14.  The  absence  of  passenger  transportation  along  the  Harbor 
Front,  becoming  more  and  more  acute  as  development  proceeds, 
will  in  my  judgment  necessitate  electric  service  in  addition  to  steam 
switching  tracks.  The  present  Belt  line  track  in  front  of  the  Eerry 
building  should  therefore  be  available  for  through  electric  service, 
with  provision  for  future  double-tracking. 

15.  Electric  service  tracks  to  be  ultimately  carried  around 
The  Embarcadcro  from  Eort  ^Mason  to  the  Channel  should  be  located 
next  to  the  pier  wall  rather  than  on  the  opposite  side:  this  posi- 
tion will  be  more  convenient  and  incur  less  obstruction.  At  the 
Eerrv  future  Belt  line  tracks  may  be  so  located  as  to  serve  their 
puri)ose  without  interfering  with  the  elevated  terminal  as  in  the  case 
of  the  present  track  when  handling  large  steam  road  equipments. 
Any  future  branches  from  the  Belt  line  tracks  to  wharves  located 
close  to  the  Eerry  terminal  should  curve  away  from  the  terminal 
instead  of  towards  it,  to  avoid  the  obstruction  of  the  most  important 
entrance  throat. 

16.  Electric  parcel  and  express  delivery  through  the  Eerry 
from  the  various  tributary  car  lines  will  very  probably  materiaUze 
in  the  near  future ;  and  in  the  layout  of  the  two  annexes  provision 
midit  be  made  to  advantage  for  routing  express  cars  directly 
into  the  building  for  this  purpose. 

SUPPLEMENTAL  DISCUSSION 

Through  the  courtesy  of  the  Southern  Pacific,  Key  Route,  and 
Northwestern  I^icific  lines,  complete  traffic  counts  have  been  made 
of  commuter  travel  to  and  from  San  Erancisco.  indicating  its  gen- 
eral characteristics  and  rate  of  growth.  The  essential  results  of 
these  voluminous  records  are  presented  in  the  accompanying  exhib- 
its, Eigs.  84  to  86. 

Growth  in  Commuter  Travel.      Prior    to   the    fire    a    steady 
growth  in  travel  from  the  Alameda  County  commuters  took  place. 


300 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


averaging  8>4%,  or  1,750,000  persons  per  year  gain.  As  a  direct 
result  of  the  fire,  this  traffic  suddenly  increased  within  one  year — 
1907— from  25  to  33  million  passengers,  a  gain  of  8,000,000  com- 
muters. Since  then  the  traffic  has  shown  a  tendency  to  return  to 
a  more  normal  level  as  in  1909,  but  is  again  on  the  increase.  This 
temporary  decrease  in  traffic  from  1907-1909  is  to  be  construed  as 
a  logical  resumption  of  normal  conditions  rather  than  an  indication 
of  retarded  growth.  It  simply  reflects  the  gradual  return  to  San 
Francisco  of  those  forced  to  move  across  the  Bay,  and  it  is  probable 
that  the  future  will  record  only  the  normal  increase  due  to  the  gen- 
eral growth  of  the  district. 

The  suburban  travel  to  Marin  County  also  reflects  slightly  this 
recent  advance  movement,  and  especially  so  the  down-peninsular 
traffic,  which  has  been  included  here  as  an  integral  part  of  the  com- 
muter study  to  indicate  the  great  possibilities  of  development  of  the 
suburbs  lying  south  of  the  San  Bruno  range  through  electric  tran- 
sit* 

Seasonal  Variation.  A  radical  difference  exists  in  seasonal 
variation  in  traffic  of  Alameda  County  and  of  Marin  County.  While 
the  former  is  nearly  constant  throughout  the  year,  irrespective  of 
seasons,  the  Marin  County  travel  increases  75%  during  the  summer 
months,  due  largely  to  pleasure  seekers.  This  is  reflected  in  the 
Sunday  travel  from  April  to  August,  which  is  nearly  double  the 
week-day  travel,  while  the  Sunday  travel  to  the  Alameda  County 
cities  is  but  a  fraction  of  that  of  the  average  business  day.  As  a 
whole,  the  comparative  uniformity  of  traffic  is  fortunate  in  permit- 
ting the  design  of  a  terminal  of  considerably  more  modest  propor- 
tions than  otherwise. 

Hourly  Variation.  The  appended  traffic  load  curves  show 
an  evening  peak  nearly  twice  as  great  as  the  morning  peak,  due 
to  the  latter  being  spread  over  a  greater  period  of  time.  Out  of  a 
total  of  about  95,900  commuters  using  the  Ferry  terminal 
daily,  19,000  require  service  city-bound  from  7  to  10  a.  m.,  and 
23,800  outbound  from  4  to  7  p.  m.  And  finally,  14,000  commuters 
leave  the  city  within  one  hour,  12,000  of  whom  are  destined  to  Ala- 
meda County  alone. 

From  this  analysis,  it  may  be  seen  that  during  the  morning  rush 
hour  nearly  five  times  as  many  passengers  use  the  Ferry  terminal  in- 
bound as  during  the  day,  and  during  the  evening  rush  hour,  about 
eight  times  as  many  travel  outbound.  Or  considering  total  traffic  in 
both  directions,  the  morning  peak  is  2.7  times,  and  the  evening, 
4.7  times  that  of  midday.     As  compared  with  surface  transit  in  the 

•  This  peninsular  traffic  now  represents  but  little  over  4%  of  the  total  commuter 
travel.  With  adequate  electric  train  service,  there  is  no  doubt  in  my^  mind  that  the 
southerly  suburbs  of  San   Francisco  could  be  developed   vastly  beyond  their  present  state. 


BION  J.  ARNOLD 


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FIGURE  84a— GROWTH  IN  SAN  FRANCISCO  COMMUTER  TRAVEL. 
The  annual  record  of  commuter  travel  by  ferry  and  by  rail  possesses 
unusual  significance  in  the  study  of  transit  needs  of  this  city.  Traffic  to 
Alameda  County  increased  two-thirds  since  1904,  with  a  maximum  of  prob- 
ably about  33,000,000  passengers  per  year  following  the  fire.  Since  then  it  ap- 
pears that  the  exodus  of  people  from  San  Francisco  to  Oakland  has  ceased, 
and  that  the  cities  of  Alameda  County  are  now  progressing  at  a  more  normal 
rate.  Marin  County  travel  is  again  on  the  increase,  but  Peninsular  com- 
muter travel  appears  to  remain  about  constant.  Taken  as  a  whole,  this  record 
indicates  that  even  with  the  erratic  effects  of  the  great  fire,  the  total  com- 
muter travel  between  San  Francisco  and  its  suburbs  will  probably  have 
doubled  within  the  decade  ending  this  year.  At  the  present  time  it  totals 
about  100,000  per  day  average  exclusive  of  long  distance  travel. 


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FIGURE  846— TYPICAL  SEASONAL  VARIATION.  TRANSBAY  TRAVEL. 
A  great  difference  exists  in  the  character  of  travel  to  the  various  trans- 
bay  communities  between  seasons.  Thus,  the  maximum  yearly  variation  in 
Oakland  and  Berkeley  travel  is  only  16.2% — indicating  comparatively  per- 
manent residence  in  those  cities;  whereas  the  variation  of  75.4%  in  the 
travel  to  Marin  County  indicates  the  great  influx  of  summer  residents.  The 
lower  curves  indicate  the  exaggerated  Sunday  peak  of  the  Marin  County 
travel  as  compared  with  a  normal  business  day,  especially  during  the  summer 
months.  An  exactly  opposite  condition  exists  for  Alameda  County  travel. 
AH  these  conditions  focus  in  the  provision  of  proper  car  service  at  the  Ferry 
terminals. 


FERRY  TERMINAL  IMPROVEMENTS 


303 


BION  J.  ARNOLD 


FIGURE   85— HOURLY   TRAVEL   TO   ALAMEDA   AND    MARIN    COUNTIES. 

As  a  result  of  extensive  counts  made  by  the  various  transportation 
companies,  it  has  been  possible  to  obtain  the  hourly  variation,  as  well  as  to 
separate  Oakland  and  Berkeley  travel  from  that  to  Marin  County.  The  dia- 
gram thus  indicates  relative  volume— over  eight  to  one  during  the  evening 
peak  load.  Inbound  and  outbound  travel  is  also  recorded  separately  during 
the  period  of  ferry  service.  This  emphasizes  the  fact  that,  whereas  the 
evening  railway  peak  is  approximately  2.5  times  that  of  midday  travel,  for 
ferry  service  the  morning  peak  is  five  times  and  the  evening  peak  seven  times 
that  of  midday. 


1 

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304  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

PION  J.  ARNOLD 


FERRY  TERMINAL  IMPROVEMENTS 


305 


FIGURE    86— TYPICAL    DAILY    AND    HOURLY    VARIATION    IN    TOTAL    ONE- 
WAY TRANS-BAY  TRAVEL. 

Here  the  most  notable  feature  is  the  very  high  midday  travel  on  Sundays, 
as  compared  with  normal  week-day  travel,  due  to  the  in  and  out-bound 
peaks  being  distributed  over  much  longer  periods.  This  means  that  during 
midday  more  car  service  must  be  supplied  to  accommodate  Sunday  ferry 
travel  than  on  week-days,  although  the  normal  service  requirements  of  the 
city  on  Sundays  as  a  whole  are  considerably  lower.  This  again  emphasizes 
the  fact  that  the  Ferry  presents  a  special  problem  that  requires  a  'distinct 
solution. 


city,  in  which  the  maxiimim  evening  peak  is  only  about  twice  that  of 
midday,  the  unusual  difficulties  arising  in  passenger  service  at  the 
meeting  of  rail  and  water  will  be  apparent.    But  this  is  not  all. 

Car  and  Boat  Arrivals.    That  adequate  passenger  service  is 
practically  impossible  with  the  present  Ferry  terminal,  will  appear 
from  the  graphical  record,  Fig.  87,  representing  typical  conditions 
of  the  morning  rush  hour.    While  cars  passed  around  the  loops  with 
a    fairly   uniform    frequency t    (averaging    well    under    30    seconds 
headway)  the  average  cars  available  during  a  loading  period  of  four 
minutes  after  boat  arrivals  varied  from  a  maximum  of  10  to  only 
3  1-3  cars  per  boat.  Out  of  18  ferry  arrivals*   only  one  was  on  time, 
one  was  early  and  the  others  were  from  one  to  eight  minutes  late. 
This  situation  is  aggravated  by  the  fact  that  during  the  worst  part 
of  the  rush  hour,  three  boats  are  scheduled  with  the  same  time  of 
arrival,  which  would  have  resulted  in  a  maximum  possible  car  ser- 
vice of  only  three  cars  per  boat — that  is,  a  car  capacity  of  350  against 
a  passenger  load  three  to  six  times  greater.  In  fact,  it  appears  from 
this  study  that  reasonably  uniform  car  service  could  only  be  ex- 
pected when  the  ferries  are  sufficiently  off  time  in  arriving  to  dis- 
tribute their  passenger  loads.  Obviously,  therefore,  one  good  remedy 
for  this  condition  is  storage  or  reservoir  track  capacity  for  stand- 
by cars  awaiting  the  ferry  arrivals,  independently  of  the  regular 
route  service.    In  any  event,  a  great  improvement  would  result  from 
arranging  the  ferry  schedules  so  that  boats  would  not  leave  and  ar- 
rive at  the  same  time.    If  four  or  five  minutes  intervened  the  maxi- 
mum car  service  per  boat  would  result  and  more  nearly  fit  into  the 
scheme  of  loop  terminals. 

Loop  Capacity.  An  unusual  opportunity  presented  itself 
during  the  recent  Belt  Railroad  construction  to  observe  the  adequacy 
of  the  present  loop  layout  for  ferry  traffic.  During  this  time  the 
inner  loop  only  was  in  operation  for  accommodating  all  Market 
Street  lines.  By  actual  count  134  cars  per  hour  passed  around  this 
one  loop,  but  the  congestion  resulted  in  the  stalHng  of  a  complete 
line  of  cars  as  far  back  as  Second  Street — over  3,000  ft. 

The  average  duration  of  stop  of  these  cars  was  1>4  minutes, 
which  probably  represents  the  fastest  speed  possible  to  obtain 
through  the  terminal.  Obviously,  therefore,  the  maximum  capacity 
of  the  inner  loop  represents  80  cars  per  hour  if  it  is  desired  to  avoid 
congestion  along  lower  Market  Street  and  to  enable  commuters 
to  reach  their  boats  promptly.  Although  the  outer  loop  accommo- 
dates  three    car   berths    against   two   on    the    inner   loop,    its    full 


1  However,   even    a    slight   variation    in   headway   affects   the   service   seriously   thus:    a 
car  30  seconds  late  on  the  loop  reduces  the  ferryboat  service  by   12^4%. 


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COMPARATIVE  BOAT  ARRNS^LS  <&  CAR  SERVICE 
FOR   MARKET  31     LOOPS 

APRIU     eo  1912 


FERRY  TERMINAL  IMPROVEMENTS 


307 


eso        •:40  »M  atoe  9:» 


FIGURE   87 —COMPARATIVE   BOAT   ARRIVALS    AND    CAR    SERVICE   ON    THE 

MARKET   STREET   LOOP. 

The  impossibility  of  serving  adequately  a  bunched  ferry  traffic  by  a  uni- 
form flow  of  cars  passing  around  the  Ferry  loops  is  here  graphically  illus- 
trated from  actual  observations  during  a  typical  morning  rush  hour.  The 
great  irregularity  of  service  resulting  is  indicated  by  the  upper  curve  of  cars 
per  boat  arrival.  At  the  bottom,  the  scheduled  and  actual  boat  arrivals  (black 
dots  and  circles)  show  that  the  boats  were  mostly  behind  time,  and  for- 
tunately so,  otherwise  the  8 :35  a.  m.  boat  service  would  have  been  reduced  to 
only  three  cars  per  boat.  Had  all  boats  arrived  on  time,  the  available  ser- 
vice would  be  represented  by  the  large  dots  on  the  upper  diagram.  The 
great  necessity  of  a  more  distributed  boat  schedule  is  evident  from  the  fact 
that  the  present  loop  capacity  is  unable  to  serve  more  than  one  boat.  A 
few  minutes'  interval  between  boats,  however,  would  result  in  from  two 
to  four  times  the  present  service. 


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capacity  is  unavailable  as  the  access  to  the  inner  loop  would  be 
practically  cut  off.  For  this  reason  the  total  capacity  of  the  two 
loops,  assuming  unobstructed  entrance  to  the  terminal,  probably 
does  not  exceed  160  cars  per  hour.  This  means  that  only  half  of 
the  Sutter  and  Geary  Street  cars  can  be  run  to  the  Ferry,  even  with 
four  tracks,  and  that  some  of  the  Market  Street  lines  must  be 
diverted  to  Mission  Street  on  their  outbound  trip.  In  other  words, 
the  loops  have  become  the  most  deficient  element  of  the  terminal. 

Recent  Changes,  The  re-arrangement  of  the  present  stub 
terminals  does  not  offer  in  my  judgment  the  slightest  improvement 
in  terminal  facilities — and  in  some  respects  the  reverse: 

1.  No  additional  storage  track  has  been  provided. 

2.  Terminals  are  more  distant  from  the  Ferry  building. 

3.  The  Embarcadero  is  more  restricted  at  its  most  important 

throat. 

4.  No  passenger  concourses  lead  to  the  terminals. 

5.  Interference  between  persons  and  vehicles  is  not  reheved. 

Terminal  loops  should  be  located  as  close  to  the  Ferry  as  practic- 
able, and  cab-stand  space  reserved  outside.  Excepting  for  the 
necessary  driveways,  cabs  should  be  excluded  entirely  from  the 
main  passenger  concourse.  Fortunately,  in  the  present  situation 
considerable  space  is  available  for  additional  storage  tracks  required 
on  both  north  and  south  side  terminals.  The  remainder  may  be 
devoted  to  cab-stands.  The  reservation  of  cab-stand  space  should 
never  take  precedence  over  passenger  car  terminals,  between  which 
two  methods  of  conveyance  there  is  no  comparison  as  regards 
capacity  and  resulting  importance. 

Improvement   Plans 

Methods  for  alleviating  the  present  conditions  and  perfecting  the 
operation  of  the  terminal  structure  may  be  discussed  as  follows : 

1.  Permanent  terminal  structure  sufficient  for  the  needs  of  the 
future,  as  well  as  the  present. 

2.  Alternative  terminal  plan  meeting  the  above  conditions  as 
far  as  possible,  with  minimum  disturbance  to  existing  street  lines. 

3.  Plans  for  immediate  execution,  serving  as  a  temporary 
reUef  with  minimum  expenditure. 

East  Street  Frontage.  The  unfortunate  irregularity  in  the 
alignment  of  building  frontage  north  of  Market  Street  is  apparent 
from  a  study  of  Plate  19 ;  and  the  most  effective  method  of  preserv- 
ing the  normal  width  of  the  thoroughfare  is  to  equalize  the  property 
frontages  by  some  method  of  "cut  and  fill."  After  much  study,  I 
am  convinced  that  the  most  practicable  method  sufficing  for  all  time 


'^<\\ 


!  'ii 


308 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


will  be  to  establish  a  rotunda  centering  about  the  present  Ferry 
building  with  a  curved  frontage  of  about  a  lv350-foot  radius.  This 
rotunda  will  provide  room  for  the  erection  of  a  proper  terminal 
structure  as  later  outlined,  leaving  The  Embarcadero  practically 
unobstructed  for  vehicles. 

This  plan  of  equalization  contemplates  the  co-operation  of  the 
City  and  State  authorities  in  the  purchase,  improvement,  and 
re-sale  of  all  frontage  affected.  As  a  result,  no  property  is  lost  or 
gained,  the  same  building  area  being  available  as  before  with  a 
probable  increase  in  rental  value  due  to  uniform  frontage.J  The 
closing  of  Steuart  Street  from  Mission  to  Market  Streets  may  be 
regarded  adversely  by  some,  but  as  this  is  a  blind  street  and  there- 
fore of  little  value  as  a  thoroughfare,  the  creation  of  a  new  block 
practically  square  is  entirely  justifiable.  The  necessity  for  this 
change  will  now  be  apparent. 

Recommended  Terminal  Structure.  In  this  plan,  which  may 
be  regarded  as  suited  for  future  requirements  for  some  time  to  come, 
the  essential  features  are: 

1.  Market  Street  traffic  delivered  direct  to  the  upper  deck  of 
the  Ferry  building. 

2.  Market  Street  kept  clear  of  elevated  structures,  thus  avoid- 
ing obstruction  to  both  vehicle  traffic  and  the  street  vista. 

3.  Reservoir  tracks  communicating  directly  with  the  rear  con- 
course of  the  Ferry  building,  for  the  accommodation  of  lay-over  cars. 

4.  Fixed  position  of  car  berths  when  loading  and  unloading, 
with  an  electric  dispatching  system  announcing  the  exact  berthing 
of  cars  prior  to  their  arrival. 

5.  Segregation  of  inbound  and  outbound  passengers  to  avoid 
interference. 

6.  A  system  of  inclines  or  ramps  giving  convenient  communica- 
tion between  the  various  levels  without  stairways. 

7.  Adequate  surface  terminal  loops  for  north  and  south  side 
lines  with  ample  storage  tracks  for  lay-overs. 

8.  Automobile,  bus  and  cab  stands  unimpeded  by  foot  pas- 
sengers. 

9.  Elevated  sidewalks  to  enable  pedestrians  to  reach  the  westerly 
side  of  East  Street. 

10.  Removal  of  Sacramento  Street  cable  line  from  interference 
with  Market  Street  traffic. 

11.  Unobstructed  vehicle  way  along  The  Embarcadero. 

.•  i*K*-M?^  °*'*'"''  *^^l  through  the  improvement  of  this  frontage  with  office  or  commer- 
cial buildings,  so  much  increased  value  may  be  realized  as  to  warrant  a  still  further  re- 
cession of  the  proposed  curved  building  line  of  the  plaza.  For  ati  increased  depth  of  the 
plaza  directly  in  front  of  the  Ferry  building,  would  be  advantageous  in  easing  the  curves  of 
the  elevated  structure  and  providing  wider   roadways  for  vehicles  crossing  the  plaza 


FERRY  TERMINAL  IMPROVEMENTS 


309 


The  acompanying  designs  must  of  course  be  considered  general 
in  their  nature.  In  the  ground  floor  plan,  Plate  19,  it  will  be  seen 
that  the  major  obstruction  of  the  street  is  due  to  the  inclines 
located  in  line  with  East  Street  trafHc,  and  not  across  it.  The  two 
surface  terminals  at  the  side  preferably  have  an  outer  loop  for  the 
more  important  routes  and  reservoir  stub  tracks  for  lay-over  cars 
waiting  for  boats. 

The  disposition  of  the  Belt  line  track  next  to  the  Ferry  building 
is  now  such  that  it  should  be  utilized  for  electric  service  around  The 
Embarcadero,  particularly  in  the  direction  of  Fort  Mason  during 
the  Panama-Pacific  Exposition.  With  a  difference  in  elevation  of 
only  16  feet  between  the  first  and  second  floors  of  the  Ferry  building, 
there  must  be  a  departure  from  the  usual  standard  of  clearance 
between  freight  cars  and  overhead  structures;  for  the  standard  22- 
foot  clearance  would  necessitate  an  extra  climb  of  probably  10  feet. 
It  would  be  manifestly  unjust  to  discommode  the  public  in  this 
manner  simply  to  maintain  a  steam  road  standard.  These  designs 
have,  therefore,  adhered  to  a  platform  elevation  of  20>4  feet  with  a 
minimum  street  clearance  beneath  girders  of  about  17  feet.  These 
elevations  permit  entrance  to  the  Ferry  building  by  easy  grade  ramps, 
and  also  the  segregation  of  passenger  movement,  without  encroach- 
ing too  seriously  upon  the  ground  floor  headroom. 

Referring  to  the  upper  level  plan,  Plate  19,  independent  loading 
platforms  are  provided  to  the  right  and  to  the  left  of  the  main 
building,  with  entrances  through  the  front  and  ends  into  the  central 
concourse  on  the  second  floor.  Reservoir  tracks  extend  back  to 
the  rear  concourse  in  the  space  between  the  main  building  and  the 
two  annexes.  There  are  thus  three  large  entrances  at  each  end  of 
the  main  building. 

The  separation  of  the  loading  platform  into  two  parts  has  re- 
sulted from  the  extreme  length  of  the  Ferry  building,  now  650  feet, 
and  eventually  nearly  twice  this  length,  which  makes  it  impossible 
to  serve  such  a  great  frontage  from  one  point.  With  two  stations 
those  desiring  to  use  the  south  slips  may  alight  at  the  south  platform, 
and  similarly  for  the  north  slips.  However,  if  this  elevated  structure 
is  completed  long  before  the  annexes,  it  would  be  entirely  feasible 
to  extend  each  platform  toward  the  central  tower,  providing  addi- 
tional openings  through  the  building  front  as  in  the  alternative  plan, 
Plate  19.  Later,  the  platforms  could  be  extended  north  and  south 
as  here  shown  sufficiently  to  serve  each  annex. 

In  this  plan,  wide  platforms  are  provided  between  inner  and 
outer  tracks  to  serve  as  a  distributing  concourse.  From  these,  short 
stairways  descend  to  mezzanine  galleries  communicating  with  both 
upper  and  lower  levels  by  easy  grade  inclined  ramps.     (Incidentally, 


310 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


FERRY  TERMINAL  IMPROVEMENTS 


311 


B 


I 


this  space  between  tracks  provides  for  an  extra  storage  track  and 
cross-over  between  stations  for  use  in  case  any  of  the  berths  become 
blocked.)  This  arrangement  is  detailed  in  the  elevation,  Plate  19, 
the  object  of  which  is  to  avoid  the  necessity  of  crossing  loop  tracks 
as  at  present.  Although  it  might  be  permissible  to  dispense  with 
these  mezzanine  passageways  if  prompt  dispatching  and  policing  is 
practised,  some  such  method  will  have  to  be  eventually  adopted  if 
the  full  capacity  of  the  terminal  is  to  be  realized. 

Lastly,  the  artistic  features  of  this  structure  may  be  readily 
conserved  by  constructing  the  inclines  concealed  as  an  integral  part 
of  a  massive  peristyle  and  archway  spanning  Market  Street.  This 
could  be  made  a  most  attractive  feature  of  the  entrance  to  San 
Francisco,  in  the  form  of  a  "Water  Gate." 

Alternative  Terminal  Structure.  In  case  it  is  found  impos- 
sible to  carry  out  the  equalization  of  the  East  Street  frontage,  practi- 
cally the  only  alternative  is  that  delineated  in  Plate  19.  Here  a  6%  in- 
cline is  built  in  Market  Street  reaching  a  height  of  about  16  feet  over 
Steuart  Street,  thence  extending  on  a  level  by  elevated  loop  to  the 
front  of  the  Ferry  building,  a  continuous  station  platform  floor  com- 
municating with  the  main  building  concourse  by  central  and  side 
entrances  on  either  side  of  the  present  waiting  room.  Owing  to 
the  location  of  the  present  Belt  line  track  next  to  the  Ferry  building, 
it  becomes  impossible  to  use  mezzanine  galleries  as  in  the  previous 
plan  recommended,  designed  to  avoid  the  crossing  of  loop  tracks 
as  on  the  present  surface  loops;  for  in  order  to  obtain  sufficient 
platform  area,  the  elevated  loops  had  to  be  moved  so  far  out  from 
the  building  that  these  galleries  would  necessarily  interfere  with 
steam  cars  passing  beneath. 

Fixed  car  berths  would  be  used  in  this  plan  in  connection  with 
an  electric  dispatching  system  with  visible  berth  indicators.  Un- 
doubtedly, the  maximum  capacity  would  be  realized  by  group  opera- 
tion— *.  e.,  loading  and  unloading  on  groups  of  two  or  more  cars 
as  a  train.  Otherwise  the  operation  of  more  than  three  berths 
becomes  complicated  and  liable  to  delays  as  now  exemplified  in  the 
surface  loops. 

Cross-overs  at  Spear  Street  permit  any  desired  distribution  of 
cars  on  the  upper  level  from  inner  and  outer  tracks  on  Market 
Street.  However,  this  plan  contemplates  retaining  the  present 
surface  logps  at  the  Ferry,  zvhich  could  be  most  conveniently  used 
by  cars  using  the  outer  tracks  on  Market  Street,  as  no  cross-overs 
would  then  be  necessary. 

One  essential  to  all  alternative  plans  is  the  recession  of  the 
Sacramento  Street  corner  to  enable  the  Sacramento  Street  cable  cars 
to  round  the  curve  next  to  the  building  line  without  interfering 


either  with  electric  cars  or  vehicle  traffic,  and  as  a  matter  of  fact 
both  corners  should  be  cut  oflF  on  some  symmetrical  plan  to  accom- 
modate this  elevated  structure  properly.  Elevated  foot  bridges  may 
be  conveniently  arranged  as  a  part  of  the  elevated  structure  to 
deliver  passengers  directly  to  the  sidewalk  from  the  ferry  building. 

The  commencement  of  the  incline  at  Spear  Street  would  allow 
cars  routed  down  California  Street  to  intersect  Market  Street  and 
reach  the  Ferry  without  serious  interference,  thus  making  possible 
a  rapid  ferry  service  direct  from  Kearny  Street  if  found  desirable. 

While  this  plan  permits  of  no  expansion  into  a  four-track  plan 
within  the  present  width  of  Market  Street,  the  first  structure  if 
located  centrally  may  be  duplicated  to  accommodate  four  tracks  if 
the  southerly  line  of  Market  Street  is  receded  20  feet  from  Spear 
Street  to  The  Embarcadero.  But  as  this  will  be  hardly  probable  in 
the  future  both  on  account  of  the  expense  of  removing  costly  build- 
ings and  of  rendering  the  thoroughfare  unsymmetrical,  this  alterna- 
tive plan  may  only  be  regarded  as  involving  a  two-track  elevated 
and  surface  loop  system  each  with  reservoir  capacity  about  twice 
that  of  the  line.  This  plan  is  therefore  an  improvement  in  so  far 
as  car  traffic  may  be  diverted  to  the  upper  level.  However,  as  it 
affords  a  private  right-of-way  through  the  most  congested  section 
of  lower  Market  Street  and  an  effective  terminal  system  as  well, 
its  capacity  would  obviously  be  much  greater  than  if  the  sanre 
additional  loop  capacity  were  provided  on  the  street  surface. 

Temporary   Improvement   Plans 

With  the  equalization  of  the  East  Street  frontage,  it  would  be 
readily  possible  to  extend  and  perfect  the  present  surface  loops  for 
the  provision  of  fixed  stopping  berths  and  ample  reservoir  track 
capacity  The  north  and  south  side  loops,  which  presumably  will 
always  remain  on  the  surface,  could  also  be  enlarged.  But  even 
if  the  equalization  plan  is  at  present  impracticable,  the  recession  of 
the  Sacramento  Street  corner  should  by  all  means  be  carried  out.  I 
again  emphasize  this  as  imperative. 

Minimum  Improvements.  For  the  present  terminal  system, 
the  minimum  improvement  work  which  in  my  judgment  can  be 
considered  in  preparation  for  1915  is  as  follows: 

1.  South  side  stub  terminal:    Increase  in  track  capacity  for  at 

least  eight  cars,  with  an  outer  loop  arranged  for  the  use 
of  the  Mission  Street  cars,  lay-overs  to  be  accommodated 
upon  the  stub  tracks. 

2.  North  side  stub  terminal:     Increase  in  track  capacity  for 

at  least  eight  cars  and  an  outer  loop. 


t 


I 


I 


312  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

3.  A    connection   along  East   Street   for   the   routing  of   cars 

inbound  on  Market  Street  to  the  outbound  tracks  on 
Mission  Street  to  complete  the  downtown  loop  mentioned 
elsewhere  in  this  report  if  4-track  operation  permits. 

4.  The  rearrangement  of  the  present  loops  to  provide  for  at 

least  three  cars  on  the  outer  and  two  cars  on  the  inner 
loop,  practically  loading  on  the  tangent,  with  a  third  inner 
loop  or  straight  spur  installed  for  storage  purposes;  an 
additional  spur  to  extend  north  as  a  connection  to  the 

north  side  stub  terminal  and  a  connection  south  with  the 

Mission  tracks. 

5.  Fixed  stopping  berths  with  multiple  car  stops,  guide  railings 

for  the  segregation  of  passengers  and  a  system  of  in- 
dicative dispatching  as  above  mentioned. 

6.  An  elevated  passenger  walkway  extending  from  the  upper 

level  of  the  Ferry  building  to  the  westerly  sidewalks  on 
East  Street,  with  descending  stairways  landing  in  the 
center  of  the  loop  and  at  points  convenient  to  the  north 
and  south  side  stub  terminals. 

The  greatest  difficulty  at  the  terminal  at  present  is  the  uncer- 
tainty of  berthing,  which  is  left  entirely  to  the  discretion  of  the 
motorman  without  any  visible  sign  indicating  the  limits  of  such 
berths.  Such  operation  is  entirely  too  crude  for  a  modern  terminal 
and  a  system  of  fixed  berths  is  imperative.  By  this  plan,  persons 
boarding  cars  will  have  from  30  to  60  seconds  to  reach  their  proper 
berth  as  indicated  by  the  signal  board  and  much  delay  will  thus  be 
avoided  by  passengers  being  ready  for  boarding. 

An  excellent  example  of  the  effectiveness  of  such  a  method  of 
dispatching  is  offered  by  the  handling  of  cars  at  the  Park  Street 
station  of  the  Boston  Subway.  Here,  cars  are  handled  in  groups  of 
five  as  a  train,  although  operated  individually,  with  the  result  that 
at  times  of  maximum  traffic  as  high  as  240  cars  per  hour  are  operated 
on  a  single  track ;  this,  however,  with  a  free  run  between  stations  on 
a  private  right  of  way.  With  multiple  unit  operation  in  groups  of 
two  or  three  cars  it  is  believed  that  conditions  at  the  Ferry  would 
be  much  improved. 


PART  V 

ANALYSIS  OF  RAILWAY  OPERATION 

AND  RECORDS 


Chapter  14.    Analysis  of  Financial  and  Operating 

Records. 

Chapter  15.    Condition  of  Physical  Property. 


I 


:'■  1 


CHAPTER  14 

ANALYSIS  OF  FINANCIAL  AND 
OPERATING  RECORDS 

Primary  Data  and  Findings  of  Fact 
Derived  Results  and  Ratios 

To  determine  whether  or  not  the  transit  business  in  San  Francisco  is 
inherently^  sound  and  profitable;  rvhether  the  property  is  operated  and  main- 
tained efficiently,  and  whether  the  methods  of  financing  and  accounting  are 
such  as  to  secure  reasonable  service  in  the  future,  it  has  been  necessary  to 
analyze  the  financial  and  operating  records  of  the  entite  transit  system  for 
10  })ears  back,  especially  to  eliminate  the  effect  of  the  disturbances  of 
1906-07.  This  chapter  contains  a  brief  summary  of  this  detailed  study, 
which  unfortunately  was  made  difficult,  and  in  some  respects  limited,  by 
the  destruction  of  records  during  the  fire.  However,  it  was  not  deemed 
a  function  of  this  report  to  completely  audit  and  examine  the  internal 
details  of  financing,  stability  of  sinking  fund,  and  integrity  of  profit  and 
loss  account;"^  but  rather  to  examine  the  financial  machinery  with  reference 
to  its  sufficiency  for  perpetuating  a  railway  property  able  to  render  adequate 
service  and  provide  the  necessary  stability  of  the  true  irrvestment. 


GENERAL  SUMMARY 

1.  The  transportation  business  in  San  Francisco  as  a  whole 
is  unusually  profitable,  due  to  very  short  haul  and  high  riding 
habit.  It  should  net  over  6%  on  $40,000,000,  or  10%  upon  a 
more  conservative  investment  figure  of  $25,000,000,  even  with 
an  operating  ratio  as  high  as  70%,  i.  e.,  including  all  proper 
charges  against  income  as  discussed  and  recommended  herein. 

2.  The  net  income  in  191 1  totaled  6.8%  on  the  $40,000,000  bonded 
debt,  while  the  average  interest  rate  actually  paid  on  $47,454,000  first 
lien  securities  was  4.84%,  including  dividends  on  $5,000,000  first 
preferred  stock  (none  have  been  paid  on  preferred  and  common 
since  1906).  The  property  has  averaged  a  net  income  of  3%  on  a 
total  capitalization  of  $80,000,000  since  the  consolidation.  But 
under  present  conditions,  this  excess  capitalization  cannot  hope 
to  earn  a  return  as  contemplated  in  the  reorganization  plan, 

*Such  a  detailed  audit  clearly  falls  within  the  jurisdiction  of  the  State  Railroad  Com- 
mission under  the  creative  law  establishing  the  Commission  in  a  direct  supervisory 
capacity  over  the  financing  of  all  public  utility  corporations  operating  in  California. 
Decision  No.  439,  rendered  Feb.  4,  1913,  touches  upon  these  matters  in  a  preliminary 
way  but  sufficient  to  confirm  the  accuracy  of  the  general  conclusions  presented  herein 
which  have  been   reached   independently  during  the  progress  of  this  investigation. 


316 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


except  to  result  in  such  poor  service  as  to  defeat  the  purpose  of 
such  a  move. 

3.  The  present  corporate  organization,  as  a  means  of  unify- 
ing some  twenty  scattered  competitive  properties,  is  justifiable 
from  an  economic  standpoint  in  the  production  of  maximum  ser- 
vice at  minimum  expense.  But  with  no  preparation  for  graye 
contingencies  such  as  an  ever-possible  strike,  the  developments 
of  late  years  have  resulted  in  depreciation  of  securities  and  the 
forced  issuance  of  high-rate  loans  or  the  equivalent  superim- 
posing of  preference  securities.  This  capital  shortage  resulting 
from  depreciation  accruing  prior  to  the  fire  is  distinctly  due  to  the 
Company's  failure  to  provide,  out  of  income  of  profitable  years, 
adequate  reserves  for  this  purpose  in  the  form  of  cash  or  nego- 
tiable assets. 

Losses  in  earnings  from  the  fire  and  strike  aggregated  nearly 
$5,000,000  for  the  period  covered  by  these  two  disasters,  and  re- 
sulted in  an  annual  setback  of  at  least  $1,000,000.  Of  this  total  loss, 
at  least  two-thirds  is  due  to  the  strike  alone,  which  brought  about 
the  necessity  for  high-rate  securities  and  floating  debts.  On  account 
of  these  contingencies,  the  Company  has  written  oflf  $3,281,809  out 
of  profit  and  loss.  The  property  loss,  with  the  exception  of  track  and 
overhead  in  certain  parts  of  the  city^  was  practically  covered  by 
insurance. 

4.  Since  the  consolidation  of  1002.  the  Company  has  expended 
about  $10,000,000  for  ''betterments"  and  some  additions  to  property 
(excluding  bond  discount),  but  approximately  half  of  this  has  been 
capitalized.  Future  betterments  should  be  financed  out  of  income 
unthout  increased  capitalisation  until  the  property  has  caught  up 
ivith  itself  in  the  matter  of  deferred  renewals  due  to  depreciation, 
obsolescence,  or  inadequacy.  Extensions  and  additions  may  justly 
be  capitalized.  But  the  only  way  of  increasing  the  value  and 
stability  of  the  business  is  to  build  up  the  property  out  of  earnings, 
thus  gradually  reducing  the  intangible  elements. 

5.  An  average  depreciation  reserve  of  3%  has  been  maintained 
since  the  consolidation.  None  was  charged  off  between  1906  and 
1909.  The  rate  of  6%  of  the  gross  earnings  per  annum  now  estab- 
lished ( 1910, 191 1 )  may  be  fair  for  the  property  under  normal  condi- 
tions, if  enough  is  spent  upon  maintenance,  and  should  be  continued 
on  a  cumulative  basis.  But  a  higher  reserve  will  be  necessary  for 
some  years — probably  8% — until  the  property  is  reclaimed  from  its 
present  run  down  condition.  A  depreciation  and  renewals  reserve 
should  be  always  available  as  cash  or  quick  assets,  and  charged 
against  income  as  a  more  or  less  fixed  element  of  the  operating 
account. 


OPERATING  AND  FINANCIAL  RECORDS 


317 


M 


6.  The  annual  appropriation  for  maintenance  (repairs  and  up- 
keep) has  remained  practically  constant  at  about  12%  for  ten  years, 
except  for  1906-7.  Due  to  increased  efficiency  resulting  from  con- 
solidation of  departments,  the  equipment  is  in  better  condition  now 
than  at  any  time  since  the  fire,  but  the  poor  condition  of  the  track 
and  roadway  requires  additional  maintenance  and  renewal.  A  total 
appropriation  of  12%  represents  probably  the  minimum  for  this 
system  for  the  next  few  years,  in  addition  to  6%  minimum  depre- 
ciation reserve.  This  total  of  18%  for  these  two  items  I  believe  is 
ample,  but  the  division,  if  any  is  made,  should  be  different,  i.  e., 
maintenance  about  10%  and  renewals  about  8%. 

7.  The  sinking  fund  on  U.  R.  R.  4's  was  established  on  about 
the  usual  basis  for  a  long-term  franchise,  but  is  correspondingly 
inadequate  for  short  terms  unless  franchise  extensions  could  prac- 
tically be  guaranteed.  Under  existing  conditions,  a  sinking  fund 
retiring  nearly  50%  of  the  debt  is  needed — sufficient  at  least  to 
retire  the  fixed  property  in  the  streets  that  would  either  revert  to 
the  City  at  maturity  or  be  sold  on  a  salvage  basis.  The  U.  R.  R.  4's 
sinking  fund  will  retire  only  about  one-third  of  the  entire  issue  at 
maturity,  assuming  its  investment  entirely  in  these  same  bonds  at 
market  value.-\  The  retirement  by  this  method  is  exceedingly 
advantageous,  as  the  present  price  secures  about  a  6%  interest  rate 
to  the  credit  of  the  fund.  The  sinking  fund  on  the  Market  Street 
Ry.  5's  (1924)  can  only  retire  about  one-sixth  of  the  issue  at  ma- 
turity, providing  there  be  no  further  increase  in  outstanding  bonds 
of  this  series,  $10,000,000  of  which  are  yet  unissued. 

8.  Net  income  over  and  above  interest  has  decreased  by 
one-half  since  1902,  due  to  an  increase  in  both  operating  expenses 
and  fixed  charges,  principally  the  latter ;  likewise,  the  balance  avail- 
able over  sinking  fund  due  to  increased  annuities.  The  so-called 
"surplus"  available  for  dividends  decreased  from  15.5%  to  4.5% 
and  was  about  sufficient  in  1911  to  carry  the  first  preferred 
stock,  assuming  depreciation  charged  against  earnings  in  the  usual 
manner.* 

9.  The  net  operating  ratio,  now  54.5%  (or  65.7%  including 
taxes  and  depreciation),  is  about  the  same  as  ten  years  ago,  al- 

t  However,  the  deed  of  trust  does  not  specifically  state  that  investments  be  made  at 
market  price  when  below  par.  And  it  is  understood  provisions  in  other  of  the  underlying 
sinlcinpr  funds  are  also  loosely  drawn. 

•Theoretically,  it  is  not  proper  to  consider  this  sinking  fund  annuity  as  sur- 
plus available  for  dividends  until  the  funded  debt  retirable  by  these  annuities  is 
actually  cancelled  and  the  liability  removed.  Although  every  dollar  of  annuity  eventually 
releases  a  credit  equity  of  $1  in  the  form  of  capital  asset,  the  net  result  of  the  operation 
of  the  sinking  fund  is  simply  to  gradually  transfer  an  equivalent  equity  in  the  property 
from  the  bondholders  to  the  stockholders.  And  until  this  transfer  is  consummated,  divi- 
dends cannot  properly  be  declared  on  surplus  created  from  sinking  fund  except  as  scrip 
or  stock  dividends  that  may  be  realized  at  maturity.  Until  the  original  liabilities  are 
retired,  the  equivalent  equity  does  not  appear  and  never  represents  cash  assets.  The 
borrowing  of  money  to  pay  such  equivalent  dividends  is  questionable  policy  under  present 
conditions. 


:  { 


318 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


though  it  had  decreased  to  45.7%  in  1906.  It  now  again  shows  a 
tendency  towards  decrease.  With  the  increased  maintenance 
and  car  service  necessary,  an  operating  ratio  of  70%  may  very 
probably  have  to  be  considered  as  a  future  standard,  if  any  sub- 
stantial share  in  the  earnings  is  to  come  to  the  city  through  a  re- 
settlement. Thus,  with  18%  maintenance  and  depreciation  and 
the  balance  (difference  between  65.7%  and  70%,  or  4.3%)  available 
for  the  City's  share  and  a  possible  bonus  to  employees,  the  business 
for  1911  would  have  paid  6.3%  return  to  the  Company  on  its  out- 
standing bonded  debt  of  $40,000,000. 

10.  The  cost  of  power  in  San  Francisco  is  high,  partly  on 
account  of  the  power  consumed  on  steep  grades,  but  also  by  reason 
of  a  high-priced  contract  for  power  forced  upon  the  Company  after 
the  fire  and  strike.  Although  the  bulk  of  the  power  is  now  supplied 
by  an  affiliated  company  at  a  fair  price,  the  cost  of  power  as  now 
charged  against  operation  is  higher  by  about  3%  of  the  gross 
earnings  than  if  the  Company  owned  its  own  power  plant  and 
paid  fixed  charges  thereon.  The  operating  ratio  is  therefore 
high  as  compared  with  former  years.  However,  the  Company 
is  now  purchasing  its  supply  at  a  rate  probably  as  reasonable  as 
it  could  produce  it  for  in  its  own  power  house,  and  is  using  this 
power  efficiently  under  the  prevailing  conditions. 

11.  Taxes  in  per  cent  of  gross  have  reduced  materially  since 
1902  and  also  since  1910  by  reason  of  the  new  corporation  tax  law, 
which  went  into  effect  at  that  time.  While  the  total  proportion  of 
taxes  is  considerably  less  than  Eastern  companies  are  called  upon 
to  bear,  the  City  itself  receives  less  than  1%  directly.  It  thus 
appears  that  a  more  substantial  City's  share  in  the  transportation 
business  of  San  Francisco,  whether  taken  in  the  form  of  revenue, 
increased  service  or  otherwise,  is  not  unreasonable. 

12.  The  relative  platform  expense,  in  per  cent  of  gross  earnings 
is  comparatively  low  at  the  present  time,  17.85%,  and  is  decreasing, 
due  to  increased  speed  and  density  of  travel.  This  has  been  accom- 
plished with  a  cost  per  car-hour  considerably  higher  than  in  any  of 
the  Eastern  cities,  and  only  exceeded  in  one  instance  on  the  Coast. 
While  this  indicates  effective  construction  of  time  schedules  for  train- 
men, it  is  also  true  that  the  service  at  the  present  time  is  probably 
at  a  minimum,  and  with  the  increase  in  car-mileage  now  required, 
the  platform  expense  will  have  to  be  increased  unless  a  corresponding 
saving  from  re-routing  can  be  effected.  The  average  wage  has  been 
increasing  yearly  since  1908,  and  is  now  the  same  as  before  the  fire, 
26.9  cents  per  hour. 

13.  The  time  schedule  for  trainmen  has  been  worked  out  for 
an  average  operating  day  of  10  hours.     In  spite  of  the  short-time 


i  < 


OPERATING  AND  FINANCIAL  RECORDS 


319 


demands  of  the  rush  hours,  only  5.6%  of  the  men  are  paid  for  less 
than  nine  hours,  and  22.4%  work  over  11  hours.  There  is  no  mini- 
mum wage.  It  is  apparent  that  any  material  reduction  of  the  hours 
of  labor,  fixing  of  maximum  time  limit,  or  of  a  full  day's  pay  for 
short  time  service  would  necessarily  result  in  a  large  increase  in 
platform  expense.  Thus  the  present  Charter  wage  scale  if  adopted 
by  or  if  forced  upon  the  Company  would  probably  increase  this  ex- 
pense by  one-half,  which  is  practically  out  of  the  question  with  a 
fixed  5-cent  fare. 

14.  The  accident  account  expense  from  injuries  and  damages 
is  extremely  low— under  3j^%,  as  compared  with  5  to  8%  in 
Eastern  cities.  This  undoubtedly  reflects  to  a  certain  degree  the 
excellent  climatic  conditions  from  a  railway  operating  standpoint 
as  well  as  good  maintenance  and  operation. 

15.  A  condition  greatly  favoring  the  Company  is  the  compara- 
tively small  seasonal  variation  in  travel  as  compared  with  Eastern 
cities.  This,  in  addition  to  the  uniform  climate,  relieves  the  Com- 
pany of  the  capital  burden  of  carrying  additional  summer  equip- 
ment for  use  during  only  a  part  of  th€  year.  Obviously,  this  condi- 
tion should  make  it  possible  for  the  Company  to  render  correspond- 
ingly better  service. 

16.  The  average  revenue  fare  or  unit  of  income  has  remained 
practically  constant  at  4.97  cents.  Some  dilution  arises  from  school 
tickets,  passes,  and  free  transportation  to  certain  municipal  em- 
ployees. The  average  income  per  total  passenger  is  reduced  by 
transfers  to  3.47  cents,  but  this  fact  has  no  material  bearing  upon 
the  earning  capacity  of  a  system  holding  a  practical  monopoly,  for 
the  reason  that  every  fare  is  retained  in  full  wherever  it  may 
originate  in  the  system.  Nearly  half  of  the  revenue  passengers  avail 
themselves  of  the  transfer  privileges  which  are  very  liberal,  m  fact 
could  be  very  properly  curtailed  in  some  respects  without  discommod- 
ing honest  patrons  in  order  to  prevent  "loop  riding." 


SUPPLEMENTAL  DISCUSSION  OF  RECORDS 
Financial,  Operating,  Traffic  and  Ratios 

In  the  following  analysis  only  such  matters  are  discussed  in 
detail  as  will  assist  in  the  interpretation  of  exhibits  appended  where 
not  covered  sufficiently  in  the  general  summary  preceding.  Author- 
ity for  these  statistics  is  cited  in  each  instance,  and  it  should  be 
stated  here  that  such  exhibits  as  forbid  analysis  under  the  limita- 
tions of  this  investigation  referred  to  at  the  beginning  of  this 
chapter  are  necessarily  accepted  at  their  face  value. 


320 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


UNITED  RAILWAYS  INVESTMENT  COMPANY 

OF     NEW  JERSEY 

INCORPORATED  FEB.  17   ISO* 


SIERRA  AMD 

SAN  FRANCISCO 

^OWtKCO. 

orawno  JUNE  wio 


GEARY  STREET 

MUNICIPAL 

RAILWAY. 

OPCMTEO  It-atJKI 


CALIFORNIA  RAILWAY  AND  POWER 

OF  DELAWARE 
INCORPCRATEO  DEC  l»IS. 


CO. 


IMS  ANO  AFTER 


SUTRO 
RAILNOAO    CO. 
lttC0ftP0MITU.8«»^ 
OKflATU  JAN.  1896 


SUTTER  STREET 

RAILWAY  CO. 
MCaKPORATO)  IE«%7 


I8S5  -  ISSS 


1860 -«SS 


1873  -  ISSO 


1870-  1873 


SAN  FRANCISCO 

ELECTRIC 
RAILWAYS    CO. 
INCORPOWmO.IMS 


UNITED  RAILROADS 


INCORPORATED 
BEGAN  OPERATION 


OF  SAN  FRANCISCO. 

MAR    A;  I90a 
MAR. BO,  IBOe 


SANFRANCOCOANO 
SAN  MATEO  EUCTM 
RAIL>«^AYCO 

iNceaMiiATio.sHe-M 


SANFMWCSatSANMMB 
RAILROAD  CO. 
CONFUTED  7- 28 -tl 


I 


PARKSIOC 

TRANSIT  CO. 

INCORmurEO.1807 


OOL^OH   ST. 

RAILWAY 
INCOKFMATCOX-'IO 


MARKET  STREET  RAILWAY  CO.  (consolioktioi 

INCORPORATED  OCT.  IB.  ISBB 


METROPOLITAN 

RAILROAD  CO 

INCWWORATIOrti-'M 


OCEAN  BEACH 

RAILWAY  CO, 
INCORFWATIOH  Z  5-V5 
CtAStOOKMTION'8C 


NORTH  BEACN  AND 
MISSION  RAIlMMrCQ 

Mcgw«MTa).«-i7%a 


NAmrrsTtmRNOMT 

RAILROAD  CO. 
INCOAFOIUTQ).  »«rtl 
OKRAfCO   I8SS 


TELEORAPH  MILL 
RAILROAD  CO. 
RUNNINa    IO-l-'8'» 
CtAXDOPCA  AaOUT'W 


6EARYST  MRKANO 
OCEAN  RAILAOAD  CO 
AUNNIM6.a-l«-'aO 
CIMUOF»  MAV.imt 


PRCSIOIOArMttlU 

RAILROAD  CO 
OFCRATED  lO-ZS-'BO 


OCEAN  aCACH 

RAILROAD  CO 
INC0(I»0IIATE02«^7 


FRONT  ST.  MISSIONS 
OCEAN  RAILROAD  CO. 
mORWRATIO  S-CS^U 
OPERATED   I8«« 


MORTH  MMMIMSMi 

RAIL  ROAD  CO. 
INCORFORATIDMnz 
OPERATED   MM- 


SOUTHONHEieHTSai 
VWrnkdON  VALLIY 
RAILROAD  CO. 

INCORMRAIEOSIS-'M 


PARK  AND  OCEAN 
RAILROAD  CO. 
INCORRIRATtO  b-CMI 
0HRXrE0.l-l-'S4^ 


SAN  FRANCSCa  CfTY 

RAILROAD  CO 
mCO*WRATEO.<H>l»l 


NORTH  S  SOUTN 
BEACH  RAILROAD  a 
IIIC0RP0RATEa44>tl 


MARKET  ST  CASLE 

RAILWAY   CO. 

mC0R«>ORATED»2Ate 


CALIFORNIA  ST. 
CABLE  RAILROAD  CO 
INCORPORATED,  1676 


CITY  RAILROAPOO 
INCORFeRATIP*«te 


MARKET  STREET 
RAILROAD  CO. 
INCORPORATED  1866 


CENTRAL  RAILROAD  Ct 
IICORPORKTEO.ISSI 
OPERATES.  I86B. 


MR  niANCSCe  MARKET 
IT. RAILROAD  CO. 
INCORPORArtO  IMT 
OPCRATEO   74-IS60 


H 


FERRIES  SCUFF  HOUSE 

RAILROAD  CO 
IHCORPORATtO  l^a'87 


POWELL  STREET 
RAIL  ROAD  CO. 
INCORPORKTEO  »«%• 


RARKS  CLIFF  HOUSE 
RAILROAD  CO. 
INCNFORATED  10-11-67 


OMNIBUS  CARLE  CO 
INC0R>CRATE0ll-e*'R7 


OMNIBUS  RAILROAD 
AND    CABLE  CO. 
INCORPOAATE^lTaata 


CLAY  ST  HILL 
RAILROAD  CO. 
INCORPORATED  »1S^ 
OPERATED  1873 


OMNIBUS  RAIIRQAD  CO. 
IRCORM>RATE0.6^E7-'6l 
OPERATED.  IS6S 


POTRCROtSWVlEW 

RAILROAD  CO. 
iNCORP0RATED4«4l 
OPERATED  ISS6 


I8S7-I870 


STREETRAIIWAY 
CORPORATEREL/mONSHIP 

SAN  FRANCISCO. 

MXOMPtNYINR  THE  REPORT  OF 

Bl  ON  J.  ARNOLD 

ON  THE 

SANFMHCSCenMCranMION  PROBUM 
TDTHEHOHBOARD  OF  SUPERVISORS 
CITY  OF  SAN  FRANCISCO. 


FIGURE  88— THE  "FAMILY  TREE." 

This  chart  indicates,  by  various  periods,  the  organization  and  develop- 
ment of  the  street  railways  in  San  Francisco  and  subsequent  consolida- 
tions. The  first  major  consolidation,  in  1893,  resulted  in  the  Market 
Street  Railway  Company.  This  corporation,  together  with  the  San 
Mateo,  Sutter  Street  and  Sutro  lines,  was  absorbed  by  the  United  Rail- 
roads of  San  Francisco  in  1902.  An  intermediary  holding  company  was  re- 
cently organized — California  Railway  &  Power  Company  of  Delaware. 


OPERATING  AND  FINANCIAL  RECORDS 


321 


Incorporation  and  Purchase.  The  United  Railroads  of  San 
Francisco  was  incorporated  under  the  laws  of  California  i^Iarch  4, 
1902,  with  the  following  capitalization:  $20,000,000  common  stock; 
$20,000,000  4%  cumulative  preferred  stock;  $35,275,000  general 
first  mortgage  4%  bonds.  Of  these  bonds  $20,000,000  were  used 
as  part  payment  for  the  properties  and  franchises  of  the  constituent 
companies,  $9,866,000  were  reserved  to  retire  the  underlying  debts 
unprovided  with  sinking  funds,  and  $5,409,000  were  reserved  for 
"future  additions,  betterments,  and  acquisitions." 

Under  the  plan  of  purchase  the  United  Railways  Investment 
Company  sold  to  the  United  Railroads  certain  shares  of  stock  and 
the  railroad  lines,  properties  and  franchises  of  the  Market  Street 
Railway  Company,  San  Francisco  and  San  Mateo  Electric  Railway 
Company,  Sutter  Street  Railway  Company,  and  the  Sutro  Railroad 
Company,  with  a  cash  bonus  of  $1,600,000  to  be  used  for  additions 
and  improvements,  and  received  in  payment  therefor  the  following 
United  Railroads  securities:  $20,000,000  general  first  mortgage 
4%  bonds ;  $20,000,000  4%  cumulative  preferred  stock ;  $20,000,000 
common  stock.  The  properties  of  these  constituent  companies 
were  already  mortgaged  for  $13,091,000,  and  $1,500,000  additional 
Market  Street  Railway  Company  bonds  were  subsequently  issued, 
making  a  total  underlying  debt  of  $14,591,000  which  the  United 
Railroads  assumed  and  provided  for  in  the  plan  of  capitalization. 

Capital  Liabilities.  At  the  present  time  (June  30,  1912)  the 
total  securities  of  the  United  Railroads  (Table  34)  are  $85,402,600, 
of  which  about  half— $47,454,000— are  bearing  interest  at  an  average 
rate  of  4.84%,  resulting  in  a  fixed  annual  charge  against  income  of 
$2,297,150.  These  interest-bearing  securities  include  $5,000,000  of 
7%  first  preferred  cumulative  stock,  on  which  dividends  have  been 
paid  since  July  15,  1908. 

Stock.  The  original  issue  of  $20,000,000  common  stock  was 
reduced  in  1908  by  the  voluntary  surrender  by  the  stockholders  of 
$1,200,000  face  value  of  these  securities  to  offset  fire  losses  and 
extraordinary  expenditures  which  had  been  temporarily  capitalized. 
Later,  the  common  stock  was  further  reduced  by  $851,400,  which 
stock  is  now  held  in  the  treasury.  The  total  outstanding  common 
stock  is  therefore  $17,948,600,  and  is  all  owned  or  controlled  by  the 
California  Railway  &  Power  Company,  except  directors'  shares. 

The  original  issue  of  $20,000,000  cumulative  4%  preferred  stock 
is  all  outstanding,  and  has  been  acquired  by  the  California  Railway 
and  Power  Company  through  the  United  Railways  Investment  Com- 
pany. 

In  1907  the  United  Railroads  floated  an  issue  of  $5,000,000  first 
preferred  7%  cumulative  stock,  the  necessity  for  which  was  caused 


I'    i 


^22  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

by  an  extraordinary  increase  in  current  liabilities  to  nearly 
$6,000,000,  brought  about  through  the  effects  of  the  fire  and  strike 
upon  the  earnings  of  the  Company,  and  also  by  the  expenses  inci- 
dent to  the  change  in  motive  power  from  cable  to  electricity.  It 
was,  therefore,  incumbent  upon  the  Company  to  immediately  increase 
its  working  capital  so  as  to  absorb  these  current  liabilities.  This 
was  accomplished  by  the  issue  of  first  preferred,  in  the  nature  of  a 
debenture  or  first  lien  upon  the  net  surplus  of  the  Company.  The 
United  Railways  Investment  Company  owned  the  entire  issue,  but 
it  is  understood  that  the  California  Railway  &  Power  Company 
has  acquired  title  to  this  stock  through  an  agreement  with  the  United 
Railways  Investment  Company,  and  that  the  stock  will  be  exchanged 
share  for  share  for  California  Railway  &  Power  Company  pre- 
ferred. 

Summarizing,  all  outstanding  stock  of  the  United  Railroads 
except  directors'  shares,  is  owned  or  controlled  by  the  holding 
company — California  Railway  &  Power  Company. 

Bonds.  During  the  period  from  1906  to  1909,  inclusive,  the 
4%  bonds  held  in  reserve  to  the  amount  of  $5,409,000,  for  "future 
additions,  betterments  and  acquisitions"  were  sold,  excepting  $75,000, 
at  prices  approximating  73 — i.  e.,  with  an  average  discount  of  27%. 
An  equivalent  interest  rate  of  5.46%  is  therefore  being  paid,  which 
would  be  increased  to  6.15%  on  the  present  market  price — 65 — in- 
dicating the  impracticability  of  floating  such  securities  at  a  reason- 
able interest  rate.  The  above  discounts  have  been  capitalized  as  a 
charge  to  betterments. 

During  1906  and  1907  an  additional  issue  of  $1,500,000  Market 
Street  Railway  5's  was  sold,  on  which  an  average  premium  of  6.72% 
was  realized,  which  has  been  deducted  from  betterments  in  the 
general  balance  sheet.  This  issue  was  provided  for  in  the  original 
plan  of  capitalization. 

The  refunding  reserve  of  $9,866,000  has  not  been  called  upon, 
due  to  the  low  market  price  of  the  4's  prevailing  at  the  time  the 
underlying  issues  matured.  There  seems  to  be  no  future  possibility 
of  being  able  to  utilize  this  reserve  of  4's  for  refunding  purposes 
because  of  the  heavy  discounts  incurred.  But  it  is  believed  that  by 
refinancing  the  4's  to  a  5%  basis,  the  market  price  would  be  so 
greatly  improved  as  to  make  refunding  still  practicable  through  this 
reserve. 

The  only  deferred  sinking  fund  requirement  is  that  of  the  Market 
Street  Railway,  which  runs  from  September  1,  1918,  to  the  date  of 
maturity,  September  1,  1924,  with  an  annual  contribution  during 
this  period  of  $160,000,  which  at  5%  would  amount  to  only 
$1,088,306.     There  is  an  authorized  issue  of  $17,500,000  of  these 


OPERATING  AND  FINANCIAL  RECORDS  323 

underlying  bonds,  of  which  $7,341,000  are  outstanding  at  the  present 
time,  so  that  at  least  $6,000,000  or  82%  must  be  refinanced  or  re- 
tired from  earnings  at  maturity  providing  the  outstanding  securities 

are  not  increased. 

Considering  all  bonded  debts,  a  maximum  of  about  $13,000,000 
will  be  retired  by  sinking  funds  at  the  various  maturities  as  near 
as  can  be  now  estimated,  leaving  $27,000,000  unfunded. 

In  addition  to  the  bonded  indebtedness,  there  was  on  June  30, 
1912,  a  floating  debt  of  $2,529,000  in  income  and  equipment  notes, 
mostly  unsecured. 

Income  Account 

The  United  Railroads  began  operation  as  a  system  on  March  20, 
1902,  so  that  a  comparison  of  the  two  previous  years  with  1903  will 
indicate  comparative  operation  by  underlyii^  companies  forming 
the  consolidation.  From  the  following  abstract,  the  most  signifi- 
cant change  that  appears  is  the  sudden  increase  in  interest  charges 
from  14%  of  the  income  in  1901  to  25%  in  1903,  with  practically  the 
same  direct  operating  expense. 

Percentage  Distribution  of  Income 

1901*        1903**      1911*** 

Total  receipts    -. ;•.•    '^^       1«>.00        100.00 

Direct  operating  expenses,  including  mainte- 
nance and  insurance  but  excluding  taxes  and 
depreciation    .- •      52.30         51.90         54.02 

Operating  expenses,  including  maintenance,  m- 
surance,  taxes  and  depreciation 59.35  oO./5  o5.uj 

Gross  corporate  income   40-65  39.25  34.^ 

Interest  and  other  deductions  from  income....       14..^;^         Z4.^Z         do.^ 

Net  corporate  income  26.43         14.73  8.^ 

Sinking   fund   contributions    lo3  l.\^  "^0/ 

Net  surplus  for  dividends  24.80  12.75  4.01 

♦Year  prior  to  consolidation. 
**First  full  year  of  operation  under  consolidation. 
♦♦♦Present   conditions. 

Referring  to  the  graphical  income  record  (Fig.  89),  there 
are  two  distinct  periods  of  operation  in  this  exhibit:  1st,  previous 
to  1907,  when  the  greater  part  of  the  power  consurned  was 
generated  by  the  operating  companies;  and  2d,  the  period  sub- 
sequent to  1907,  in  which  power  has  been  largely  purchased  as 
later  explained  (page  329).  These  two  periods  are  not  com- 
parable unless  allowance  be  made  for  the  interest  charge  on 
power  plant,  which  amounted  to  about  3%  of  the  income  in  1911. 


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FIGURE  89— GRAPHIC  ANALYSIS  OF  INCOME  ACCOUNT. 
In  this  diagram,  the  total  income  is  built  up  with  the  major  accounts 
traceable  from  year  to  year  by  diagonal  lines.  Increases  are  indicated  by  the 
divergence  of  these  reference  lines,  and  vice  versa.  Annual  growth  is  indicated 
by  the  total  height.  Distribution  is  shown  in  per  cent  of  total  income,  so  that 
the  various  years  may  be  compared  on  the  same  basis :  this  indicates  also  the 
distribution  of  the  nickel  fare.  Sinking  fund  payments  are  shown  here  as  a 
direct  charge  against  annual  surplus.  The  considerable  increase  in  net  in- 
come for  the  year  1912  is  noticeable,  partly  due  to  absence  of  a  depreciation 
reserve. 


OPERATING  AND  FINANCIAL  RECORDS 


325 


Formerly,  these  fixed  charges  were  all  included  in  ''interest  on 
investment ;"  but  now  in  operating  expenses  under  ''cost  of  povi'er." 
On  the  basis  of  this  readjustment,  direct  operating  expenses 
in  per  cent  of  income  (including  maintenance  and  insurance  but 
excluding  taxes  and  depreciation)  have  decreased  since  1907  to 
practically  the  same  level  today  as  in  1900 — 51%.  How^ever,  this 
rate  also  decreased  from  a  maximum  of  51%  in  1900  to  45%  in  1905, 
yielding  the  highest  net  earnings  in  the  Company's  history — about 
$3,000,000— in   the   latter   year. 

Dividends,  The  Company's  financial  difficulties  of  1907 
and  1908  were  undoubtedly  increased  by  its  heavy  dividend 
declarations,  especially  in  the  first  quarter  of  1906,  when  a 
total  of  $1,020,000  was  declared.  In  addition,  2%  or  $400,000 
was  paid  after  the  fire,  a  total  of  $1,420,000  for  the  fiscal  year, 
or  7.1%  on  the  preferred  stock.  The  net  surplus  for  1906  was 
$877,146,  which  would  have  enabled  the  Company  to  declare  a 
dividend  of  4.38%  on  the  preferred,  so  that  approximately  39%  of 
the  dividends  must  necessarily  have  been  paid  from  accumulated 
surplus.    This  practice  has  also  been  followed  in  1908  and  1910. 

By  reason  of  this  relation  between  surplus  and  dividend-^, 
no  attempt  has  been  made  in  this  report  to  indicate  true  profit  and 
loss  for  the  various  fiscal  years.  For  the  period  1903  to  1911, 
inclusive,  it  appears  that  the  total  dividends  as  reported  by  the 
Company  aggregate  over  $860,000  more  than  the  cumulative 
surplus  from  operation,  considering  depreciation  as  an  actual  cash 
reserve  out  of  income.  This  means  that  unless  corresponding  credits 
were  properly  available  for  the  stockholders  from  sources  other 
than  actual  income,  these  excess  dividend  declarations  could  not 
have  been  founded  upon  true  earning  capacity  of  the  operating 
property.* 

Dividends  Paid 

First  preferred,  7  semi-annual  dividends  at  35^% — July,  1908 

to  July,   1911    $175,000  each 

Preferred,    7    semi-annual    dividends — December,    1902,    to 

December,  1905,  at  1.2  to  2.07c    $240,000  to  400,000  each 

March,  1906.  at  3.6%    720,000  each 

December,    1906,    at    2.0%     400,000  each 

Common — 

March,  1906,  at  1.5%   300.000  each 

The  distribution  of  expenditures  (Fig.  90),  offers  a  graphical 
comparison  of  net  earnings  as  against  interest  and  sinking  fund ; 
dividends  are  of  course  to  be  met  from  the  balance.  In  on!y 
one  year,  1907,  did  a  deficit  occur. 

•  See  discussion   of  sinking  fund   equities,  page    317. 


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326 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Renewals  and  Depreciation.  During-  the  past  two  years 
the  Company  has  modified  its  policy  regarding  reserves  by 
charging  depreciation  directly  to  profit  and  loss.  The  proper 
treatment  of  depreciation  is  of  great  importance,  and  it  is  a 
radical  error  to  consider  it  as  other  than  a  direct  annual  charge 
against  income,  prior  to  the  declaration  of  net  earnings.  Unless 
this  profit  and  loss  account  is  segregated  on  the  balance  sheet 
so  as  to  clearly  show  depreciation  reserve,  it  is  impossible  to 
determine  the  extent  or  character  of  the  funds  available  therefor. 
A  stated  percentage  of  the  gross  earnings  should  be  set  aside 
annually  in  the  nature  of  a  floating  asset  or  reserve  that  could 
be  readily  converted  into  cash  available  for  replacements  when  the 
necessity  arises. 

Taxes  and  other  Obligations.  Under  the  terms  of  the  var- 
ious franchises,  amounts  varying  from  two  to  five  per  cent  of 
the  receipts  of  many  of  the  lines  accrue  to  the  City  annually 
in  the  form  of  a  usage  tax.  Some  of  the  important  lines,  such  as 
Market  Street,  bear  no  tax  under  the  ordinances.  The  State 
now  receives  a  fixed  tax  of  4%  of  the  gross  earnings,  while  the  City 
receives  less  than  i%,  including  all  obligations  imposed,  or  less 
than  one-fifth  of  the  total  taxes.  (See  Chapter  19,  special  report 
on  settlement  of  franchise  tax.) 

The  electrification  of  the  United  Railroads  cable  lines  in 
1906  was  permitted  only  upon  condition  that  ornamental  poles 
be  erected  on  Market  Street  to  Valencia  Street,  and  on  Sutter 
Street  to  the  west  line  of  Van  Ness  Avenue,  and  that  electric 
lights  be  installed  and  maintained  by  the  Company  with  under 
ground  conduit  distribution. 

Practically  all  franchises  stipulate  that  the  Company  provide 
and  maintain  paving  within  and  between  tracks,  and  for  two  feet 
outside  of  the  outer  rail. 

A  statement  of  the  Company's  obligations  for  the  year  1911, 
exclusive  of  costs  of  paving  and  free  transportation  of  municipal 
and  federal  employees,  follows: 

Per  Cent 

State,  4%  gross  earnings $315,445  80.00 

City  and  County,  non-operative  property  tax 9.955  2.52 

Percentage  tax  upon  receipts 41.600  10.55 

Car  licenses,  etc 8.600  2,18 

Street  lighting   13,000  3.30 

Federal    income    tax 5,700  1.45 

TOTAL*    $394,300      100.00 

*  This  total  is  in  slight  disagreement  with  the  statement  of  total  taxes  in  the  Com- 
pany's Income  Account — ^$404,000. 


FIGURE  90— DISTRIBUTION  OF  EXPENDITURES. 

In  order  that  the  important  sub-accounts  may  be  compared,  year  by 
year,  these  have  been  plotted  to  the  same  base  line.  Gross  earnings  from  op- 
eration have  been  employed  here  instead  of  total  income,  in  order  to  give 
an  accurate  comparison  from  an  operating  viewpoint.  The  difference  is  small 
— about  one  per  cent.  Total  maintenance  is  indicated  by  dotted  lines.  Change 
in  motive  power  during  the  decade  is  clearly  reflected  in  the  power  account. 
Depreciation  is  here  treated  as  a  cash  reserve,  reducing  net  earnings,  and  not 
as  a  charge  against  Profit  &  Loss. 


1^'' 


328 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Referring  to  Fig.  90,  it  will  be  seen  that  taxes  have  remained 
practically  stationary  in  amount  since  1900,  and  therefore  have 
decreased  in  percentage  to  5.12%  of  the  gross  earnings  at  the 
present  time.  The  percentage  in  Chicago  is  twice  as  great, 
including  City's  share  of  net  profits,  and  nearly  twice  in  Baltimore, 
where  no  City's  share  exists. 

Injuries  and  Damages  are  comparatively  low  and  have 
increased  only  slightly  in  spite  of  the  higher  speed  of  electric 
operation.  Damage  payments  averaged  about  2%  up  to  1906, 
during  which  period  there  was  mostly  cable  operation,  as  com- 
pared with  about  3J^%  since  the  electrification  when  the  electric 
car  mileage  has  been  approximately  95%  of  the  total.  This  in- 
crease is  doubtless  due  to  increased  speed  of  operation,  which  is 
12%  higher  now  than  in  1907.  However,  this  average  percent- 
age is  low  compared  with  other  cities — about  one-half  of  Chi- 
cago's damage  account  for  the  year  1911. 

Table  49,  an  analysis  of  the  accident  account,  indicates  that 
while  the  proportion  of  accidents  to  persons  has  increased  since 
1908,  the  number  of  passengers  carried  per  accident  has  also  in- 
creased from  78,000  to  91,000 — a  very  creditable  result. 

Maintenance.  While  this  subject  is  discussed  from  another 
standpoint  in  Chapter  15,  the  graphical  record.  Fig.  90,  offers 
a  direct  substantiation  of  the  results  shown  in  that  chapter.  Main- 
tenance of  equipment  has  continually  decreased  during  the  last  four 
years  from  the  1907  maximum  which  resulted  from  rehabilitation 
following  the  fire  but  as  stated,  the  present  good  condition  of  the 
equipment,  as  a  result  of  this  high  maintenance  and  the  increased 
efficiency  in  the  shops,  would  appear  to  warrant  this  reduction,  espe- 
cially in  view  of  the  fact  that  the  maintenance  expenditure  per  car 
mile  is  relatively  high  as  compared  with  Eastern  cities. 

However,  maintenance  of  track  and  roadway  has  remained 
abnormally  low,  though  increased  from  $630  per  mile  of  track  in 
1903  to  about  $1,100  per  mile  in  1911 ;  but  even  with  this  increase, 
deferred  maintenance  and  renewals  have  accumulated  to  such  an 
extent  that  parts  of  the  track  and  roadway  are  now  in  a  very  poor 
condition,  as  evidenced  by  detailed  inspection  (see  Chapter  15). 
For  this  reason,  it  is  probable  that  the  appropriation  for 
track  and  roadway  will  have  to  be  increased  to  at  least  5%  of  the 
gross  earnings  (which  for  1911  would  have  amounted  to  $1500 
per  mile,  or  1.6  cents  per  car  mile)  and  that  way  and  structures 
appropriation  should  total  6%  of  the  gross  earnings,  or  about 
$1,800  per  mile  of  track.  This  will  compare  more  favorably 
with  the  known  results  of  established  properties  elsewhere. 


OPERATING  AND  FINANCIAL  RECORDS 


329 


The  total  cost  of  maintenance  (11.47%  of  the  gross  earn- 
ings in  1911)  appears  hardly  sufficient  for  the  immediate  future,  and 
at  least  12.5%  of  the  gross  earnings  should  be  set  aside  until  the 
property  is  built  up ;  any  reduction  in  the  cost  of  equipment  main- 
tenance accruing  to  the  track  maintenance  account. 

Platform  Expense.  Tracing  the  history  since  1901  of  plat- 
form wages  in  per  cent  of  gross  earnings,  it  appears  from  Fig. 
90  that  this  important  part  of  transportation  expense  was  no 
greater  in  1911  than  in  1903-4;  and  when  expressed  in  per  cent 
of  gross  earnings,  platform  wages  had  continuously  decreased  from 
23%  in  1901  to  17.85%  in  1911,  although  an  increase  in  the  average 
wage  per  man  had  occurred  since  1908.  The  average  wage  is  now 
the  same  as  before  the  fire,  26.9  cents  per  hour,  with  a  maximum 
of  33  cents  after  8  years'  service.  This  decrease  in  platform  per- 
centage does  not  necessarily  indicate  a  proportional  reduction  in 
service,  because  of  the  effects  of  higher  car  capacities  and  speeds 
and  better  schedules ;  but  in  this  case  there  is  every  indication  of 
curtailment  in  car  hours — that  is,  the  equivalent  of  service — at 
least  from  1903  to  1906,  if  not  during  recent  years. 

The  relative  apportionment  of  wages  paid  to  all  railway  em- 
ployees has  been  illustrated  in  Chapter  4,  Fig.  20,  and  there  set 
into  contrast  with  the  proportional  expenditures  for  service,  for 
Company  return,  and  for  taxes  respectively.  This  exhibit  is  of 
unusual  interest,  in  that  all  wages  of  $1500  per  annum  or  under  are 
included  as  well  as  platform  expense  alone,  so  that  the  true  share 
of  labor  in  the  railway  business  may  be  fully  appreciated ;  plat- 
form wages  evidently  amount  to  but  little  over  one-half  of  the 
total. 

For  every  $1(X)  of  income,  $35  is  applied  by  the  Company 
to  the  payment  of  fixed  charges,  sinking  funds  and  dividends ; 
$30  is  required  for  operating  expenses  other  than  wages ;  and 
$30  pays  operating  labor,  of  which  platform  men  alone  receive 
$18,  approximately.  Only  $5  goes  to  the  public  in  the  form  of 
taxes;  and  finally,  less  than  $1  reaches  the  City  directly. 

Power,  The  result  of  purchasing  power  is  apparent  by 
comparing  the  last  four  years  with  the  period  prior  to  the  fire. 
Thus,  the  proportional  expense  for  power,  increased  from  about 
5%  in  1905  to  16%  in  1908,  thence  decreasing  to  13%  in  1911. 
(Fig.  90.)  The  high  cost  of  power  in  1908 — 5.51  cents  per 
car  mile — due  to  conditions  of  supply  detailed  in  Chapter  15,  has 
since  been  reduced  to  4.45  cents  per  car  mile,  with  70%  of  the 
total  power  supplied  by  the  Sierra  &  San  Francisco  Power  Com- 
pany.   Adjusting  this  power  account  for  fixed  charges,  the  cost 


752 


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■ION  J.  ARNOLD 


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500 


400 


200 


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294-       56789       10      II 

FIGURE  91— TIME   SCHEDULE   CHARACTERISTICS. 

The  net  result  of  a  railway  time  schedule  in  giving  every  man  a  full 
day's  work  and  pay  as  far  as  possible  is  clearly  indicated  here.  Out  of 
1,510  trainmen  assigned  to  "regular"  and  to  "swing"  runs  (i.  e.,  "trippers"  or 
extras),  752,  or  practically  half,  work  between  10  and  lOj^  hours;  and  only 
Sj4%  of  the  men  are  paid  for  less  than  nine  hours'  work.  The  schedule  is 
thus  constructed  upon  the  basis  of  practically  a  10-hour  working  day,  and 
aims  to  complete  the  day's  work  within  12  hours.  No  minimum  wag€ 
exists,  the  men  being  paid  for  the  time  they  work.  The  shorter  the  average 
day's  work,  the  more  difficult  it  becomes  to  provide  swing  runs  for  rush 
hour  service  without  increasing  operating  expense  unduly. 


OPERATING  AND  FINANCIAL  RECORDS 


331 


of  power  per  car  mile  comparable  with  former  years  would  be 
about  3.5  cents,  which  is  considerably  higher  than  in  level  cities. 
That  much  of  this  is  due  to  topographic  conditions  is  shown 
by  the  high  power  consumption,  averaging  4.8  k.w.h.  per  car 
mile  in  1911.  In  level  cities  such  as  Chicago  this  same  equip- 
ment could  be  operated  for  possibly  3.5  k.w.h.  per  car  mile.j: 
And  as  grades  are  unavoidable  in  San  Francisco,  this  suggests 
the  great  necessity  of  the  lightest  possible  equipment.* 

Growth  of  Traffic,  From  the  monthly  traffic  record.  Fig. 
92,  two  facts  are  apparent — 1st,  the  great  loss  due  to  the  fire 
and  particularly  to  the  strike ;  and  2nd,  the  small  seasonal  varia- 
tion characteristic  of  San  Francisco. 

When  reduced  to  a  basis  of  a  uniform  month — 30.4  days — the 
variation  between  spring  and  fall  is  inconsiderable — only  10% 
of  this  passenger  traffic.  One  noticeable  result  of  the  first  three 
years  of  the  Company's  operation  is  that  the  car  mileage  operated 
— a  direct  reflection  of  the  service  standard — did  not  at  all  keep 
pace  with  the  increase  in  traffic;  although  since  1908  conditions 
have  improved  in  this  respect. 

The  great  stability  of  the  business  of  urban  transportation 
is  illustrated  by  reference  to  the  curve  of  bank  clearings  superim- 
posed upon  this  record.  Here  the  fact  appears  that  railway  traf- 
fic was  not  appreciably  disturbed  by  the  financial  depression  of 
1907-8  in  its  rapid  recovery  from  the  effects  of  the  strike.  Of 
the  two  great  catastrophes,  the  strike  resulted  far  more  seri- 
ously, causing  a  maximum  drop  of  15,000,000  passengers  in  one 
month  as  against  a  maximum  of  8,500,000  in  one  month  as  a 
result  of  the  fire.  Assuming  that  the  average  rate  of  growth 
in  earnings  from  January  1903  to  April  1906  had  continued,  the 
total  loss  in  earnings  during  the  fire-strike  period  amounted  to 
nearly  $5,000,000.  In  other  words,  had  the  fire  and  strike  not 
occurred  the  gross  earnings  in  1907  would  probably  have  been 
$7,865,000  instead  of  $4,745,000,  or  about  the  same  as  in  1911.  Four 
years  have  thus  been  lost  due  to  these  disasters,  and  in  addition,  a 
permanent  set-hack  of  over  $1,000,000  per  year  in  gross  earning 
capacity  of  the  property. 

The  transfer  traffic  in  San  Francisco  has  reduced  since  1904, 
when  48  out  of  every  100  revenue  passengers  used  transfers  as 
against  43  at  present.  This  reduction  is  no  doubt  due  to  the 
validation   of  transfers  on   cross-town   lines   instead   of  issuing 

J  In  Chicago  the  power  consumption  per  car  mile  was  3.67  k.w.h's  for  the  year  1911. 

*  It  is  probable  that  the  Company  could  well  afford  to  retire  to  the  more  level  routes 
much  of  the  equipment  now  operating  on  heavy  grade  routes  rather  than  to  incur  this 
great  expense  for  power.  The  class  1550  cars,  of  which  there  are  200,  are  particularly 
unfortunate  in  this  respect,  weighing  56,000  lbs.,  as  against  weights  of  46,000  to  48,000 
lbs.  on  the  Geary  and  Sutter  Street  lines. 


332 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


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BION  J.  ARNOLD 


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FIGURE  92— GROWTH  CHARACTERISTICS. 
In  this  diagram,  one  point  indicates  for  each  year  the  earnings,  car  mile- 
age, and  also  earnings  per  car  mile  (shown  by  the  diagonal  reference  lines). 
The  direct  rise  from  1903-5  shows  that  the  earnings  increased  while  the  car 
mileage  remained  practically  the  same.  From  1908  on,  earnings  and  car  mile- 
age have  increased  proportionately — i.  e.,  practically  following  the  diagonal 
of  36c  per  car  mile.  Both  should  increase  proportionately,  unless  a  radical 
change  in  size  of  equipment  should  take  place.  In  each  of  the  two  respec- 
tive periods  noted — 1903-5  and  1908-11 — practically  the  same  character  of 
equipment  was  operated.  Similarly,  track  mileage  has  shown  erratic  growth 
as  compared  with  car  mileage  operated. 


FIGURE  93-RECORD  OF  MONTHLY  GROWTH  OF  SYSTEM. 
The  monthly  record  of  traffic  reveals  many  facts  not  apparent  from  the  an- 
nual   fiscal    statement.      This    graph    indicates    the    relation    between    traffic 
and  service  (as  reflected  in  car  mileage).  Variations  are  largely  due  to  un- 
equal lengths  of  months,  except  under  the  abnormal  disturbances  of  1906  and 
1907      Seasonal  variation   is  much  less   pronounced   than   in   Eastern   cities 
From  1902  to  1905  (inclusive),  service  (car  mileage)  did  not  keep  pace  with 
the  growth  in  traffic,  but  since  1908  there  has  been  some  improvement  in  this 
respect.  Railway  traffic  was  not  appreciably  disturbed  by  the  financial  depres- 
sion in  its  rapid  recovery  from  the  effects  of  the  fire  and  strike. 


Ill 


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334 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


transfer  on  transfer  as  formerly.  The  transfer  facilities  afforded 
by  the  Company  are  now  very  liberal  as  compared  with  other 
cities,  with  the  single  exception  of  Chicago,  where  unusual  condi- 
tions obtain  to  produce  a  transfer  traffic  as  high  as  70%  of  the 
cash  fares. 

Average  Fare.  During  the  last  decade  the  dilution  of  the 
5-cent  fare  from  reduced  rate  school  tickets  and  free  passes  to 
Municipal  and  Company  employees  has  amounted  to  only  about 
1%  under  normal  conditions  of  operation.  Transfer  traffic 
now  results  in  an  average  fare  for  all  classes  of  about  3.5  cents. 
This,  however,  has  no  special  significance  so  long  as  a  unified 
system  is  maintained;  but  with  transfer  between  foreign  lines 
such  as  Geary  Street  an  actual  dilution  of  income  per  passenger 
takes  place  through  splitting  of  the  fare  which  must  be  recognized. 

Analytic  Ratios.  Subjecting  the  operating  records  to  a 
final  analysis  by  means  of  various  ratios,  it  is  possible  to  trace 
the  relative  efficiency  of  operation  from  year  to  year  and  es- 
pecially in  comparison  with  known  standards  of  other  cities,  if 
in  this  comparison  conditions  peculiar  to  San  Francisco  are  taken 
into  account. 

The  abnormally  high  earning  capacity  noted  elsewhere  is 
reflected  in  all  of  the  ratios — gross  earnings  per  capita,  per 
car  mile,  per  car  hour,  per  car  operated,  and  per  mile  of  track. 
With  earnings  of  $30,000  per  mile  of  single  track,  San  Francisco 
equals  or  exceeds  cities  many  times  its  size.  This  is  partly  due 
to  the  fact  that  the  system  has  not  been  extended  to  keep  pace 
with  the  population,  and  partly  to  the  exceptionally  high  riding 
habit,  which  results  in  1911  in  earnings  of  over  $18  per  capita  for 
the  United  Railroads  alone ;  or,  including  all  systems,  about  $20 
per  capita. 

While  the  relative  utilization  of  the  present  trackage — 84,000 
car  miles  per  mile  of  track — appears  high  for  a  city  of  this  size, 
a  shortage  of  cars  is  indicated  by  the  low  average  cars  per  mile 
of  track  as  compared  with  other  cities  (i.  e.,  the  average  dis- 
tance between  cars  in  San  Francisco  should  be  a  minimum,  due  to 
the  prevailing  short  haul  and  high  density).  Therefore  the  usage  of 
present  track  should  be  even  higher  than  above  recorded;  and  this 
has  been  confirmed  by  traffic  counts.  This  shortage  in  cars  is 
further  reflected  in  the  high  average  car  loading — 10.15  pas- 
sengers per  car  mile — exceeding  that  of  any  other  city.  Ap- 
parently, this  loading  had  decreased  since  1909,  but  as  this  was 
largely  due  to  known  increased  speed  of  operation,  the  actual 
conditions  are  better  shown  by  the  ratio  "total  passengers  per 
car  hour,"  which  have   increased   materially  since   1909.     This 


OPERATING  AND  FINANCIAL  RECORDS 


335 


BION  J.  ARNOLD 


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FIGURE  94— CAR-HOUR   RATIOS,   EARNINGS   AND   EXPENSES. 
The  car-hour  offers  the  best  basis  for  analysis  of  operation  and  schedules 
with  reference  to  platform  labor  employed,  and  automatically  takes  mto  ac- 
count variations  in  operating  speed.     From  this  record  it  appears  that  while 
both  operating  expenses  and  earnings  increased  between  1905  and  1911,  plat- 
form expense  per  car  hour  has  remained  practically, constant  since  1905,  rang- 
ing between  52  and  55  cents.    This  represents  the  average  wages  per  car 
crew     From  1908  on,  the  earnings  have  increased  while  the  operating  ex- 
pense has  decreased  slightly,  indicating  an  increasing  density  of  traffic  and 
possibly  curtailment  of  service. 


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336         .  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

BION  J.  ARNOLD 


OPERATING  AND  FINANCIAL  RECORDS 


337 


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FIGURE  95— COMPARATIVE  PROPORTIONAL   RETURNS   FROM   INCOME. 

Analyzing  the  record  of  income  share  to  Company,  Labor,  and  City  for 
the  past  twelve  years,  it  appears  that  while  interest  on  debt  has  largely  in- 
creased, the  Company's  total  share  has  decreased  by  about  6  per  cent.  But 
its  depreciation  has  not  been  deducted  as  a  cash  reserve,  then  the  Company's 
share  has  remained  constant  while  that  of  Labor  and  City  has  continually  de- 
creased— the  latter  fully  one-third,  even  assuming  State  taxes  as  a  form  of 
return  to  the  City.  There  seems  little  doubt  that  the  City  might  very  prop- 
erly receive  a  more  equitable  return. 


ratio  compensates  automatically  for  variations  in  speed.  Again, 
to  this  increased  loading  is  very  largely  due  the  abnormal  earn- 
ings per  average  car  operated — $13,000  per  car  per  year — the 
highest  of  any  urban  system  in  the  United  States. 

While  high  earning  ratios  are  to  be  expected  from  short- 
haul  and  high  density  travel,  the  excessive  earnings  here  recorded 
would  not  be  warranted  until  the  operating  equipment  per  mile 
of  track  had  been  increased  and  the  trackage  of  the  system 
largely  extended,  for  both  have  been  shown  to  be  necessary  by 
the  traffic  survey  of  the  city  and  the  study  of  its  needs.  The 
average  fare  has  not  been  materially  diluted  below  5  cents,  nor  is  the 
transfer  traffic  abnormal,  so  that  the  unit  of  income  has  been 
reasonably  preserved  as  compared  with  other  cities. 

It  is  true  that  direct  expenses  of  operation  are  relatively 
higher  than  in  Eastern  cities,  which  justifies  to  a  certain  degree 
these  high  earning  ratios ;  yet  an  operating  ratio  as  low  as  54% 
(including  maintenance  and  insurance  but  exclusive  of  taxes  and 
depreciation)  certainly  indicates  that  advantage  is  being  taken  of 
conditions  in  this  city  to  produce  abnormal  net  income  from  the 
present  property  by  deferring  the  extensions  and  improvements  to 
service  recommended  herein. 

Proportional  Income  Share.  This  analysis  may  appro- 
priately be  concluded  by  observing  the  changes  in  proportional 
share  from  income  accruing  during  various  years  to  the  princi- 
pals in  this  business  of  urban  transportation — City,  Labor,  Com- 
pany. Fig.  95  shows  that  immediately  after  the  consolidation 
of  1902  interest  charges  increased  abruptly,  and  although  rising 
still  further  during  1906-7,  eventually  returned  to  the  previous 
level  of  1903  after  nearly  a  decade. 

The  Company's  return  is  represented  by  net  income,  which  was 
insufficient  during  1907  to  meet  fixed  interest  charges.  If  de- 
preciation had  been  charged  as  a  cash  reserve  against  income,  the 
Company's  return  would  have  been  reduced  from  41  to  35%  during 
the  decade.* 

Trainmen's  share  has  reduced  as  previously  explained. 

The  City's  share  has  suffered  the  greatest  reduction,  es- 
pecially during  the  last  year  as  a  result  of  the  change  in  basis 
of  State  taxation.  To  compensate  for  this  general  decrease  in 
the  share  of  the  principals,  a  corresponding  increase  in  other 
items  of  expense  has  taken  place,  viz.,  power,  damages  and  de- 
preciation. 

•  This  illustrates  the  great  importance  of  proper  treatment  of  the  various  reserve 
accounts.  If  depreciation  has  not  been  handled  as  a  cash  reserve  from  income,  then 
the  Company's  share  has  increased  rapidly  while  the  others  have  suffered  decrease. 


CHAPTER  IS 

CONDITION  OF  PHYSICAL  PROPERTY 

Results  of  Property  Inspection 
Analysis  of  Maintenance  of  Rolling  Stock 

To  obtain  definite  data  on  the  extent  and  condition  of  the  railway 
ph}fsical  property,  its  sufficiency  for  transit  purposes  and  the  standards  of 
maintenance,  all  of  which  are  important  elements  in  any  equitable  settle- 
ment between  City  and  Company,  a  detailed  inspection  of  all  street  rad- 
way  properties  operating  in  San  Francisco  was  made.  In  this  chapter  are 
included  the  summarized  results  of  the  inspection,  covering  242  miles  of 
track,  650  special  work  layouts,  paving,  buildings,  shops,  power  equip- 
ment, and  rolling  stock,  showing  the  magnitude  of  the  rehabilitation  work 
which  must  be  undertaken  in  the  near  future.  While  sufficient  for  a 
general  indication  of  conditions,  the  resulU  of  this  inspection  of  course 
cannot  be  too  rigidly  interpreted  since  the  effort  and  cost  of  an  accurate 
determination  would  be  warranted  only  in  case  of  a  detailed  appraisal. 


SUMMARY  OF  CONDITION  AND  REHABILITATION 

1.  Referring  to  the  appended  classified  summaries,  it  appears 
that  about  37  miles,  or  16%  of  the  total  trackage  in  San  Francisco, 
is  in  such  depreciated  condition  that  rehabilitation  thereon  should 
be  commenced  immediately.  In  addition,  61  miles  of  inadequate 
track  construction  exists,  of  which  34  miles  requires  early  renewal 
and  29  miles  on  unimportant  lines  is  in  good  condition  and  will  only 
need  renewal  later.  From  the  above  it  may  be  said  that  about  70 
miles  of  track  represents  the  magnitude  of  the  rehabilitation  work 
that  must  be  undertaken  in  the  near  future  in  addition  to  4  miles 
of  adequate  rail  section  needing  extensive  repairs. 

2.  Out  of  approximately  650  special  work  layouts,  exclusive 
of  those  in  car  houses  and  yards,  238— about  one-third  of  the 
total— are  in  good  condition  but  require  slight  repairs,  and  131 
layouts,  or  30%,  are  in  such  shape  as  to  require  extensive  repair 
or  renewal  in  the  near  future. 

3.  Of  the  185  miles  of  single  track  paved,  there  is  approxi- 
mately 40  miles,  or  22%  of  the  total,  which  will  be  renewed  in  the 


340 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CONDITION  OF  PHYSICAL  PROPERTY 


341 


course  of  necessary  track  reconstruction  as  above  specified;  and  in 
addition,  23  miles  along  good  track,  requiring  repairs  or  repaying. 

4.  Of  the  661  cars  in  operative  condition,  about  20%  are  of 
obsolete  type  and  inadequate  for  service  in  the  congested  district. 
Fully  half  of  the  cable  equipment  is  entirely  too  small  for  downtown 
service.  There  are  in  all  254  electric  cars,  or  40%  of  the  total, 
which  are  either  inadequate  for  downtown  service  or  should  be  re- 
built into  the  prepayment  type  if  run  on  congested  streets. 

5.  There  are  no  fire-proof  car  houses,  the  only  protection  con- 
sisting of  hose-reels  and  buckets,  which  are  insufficient  when 
judged  by  modern  standards.  Car-cleaning  facilities  are  fairly 
adequate.  The  car  storage  capacity  is  insufficient  for  the  new  1912 
equipment,  and  new  car  house  construction  is  necessary,  especially 
if  extensions  are  undertaken.  The  locations  are  fairly  well  suited 
to  the  present  system  of  routing. 

6.  The  Company  operates  a  good  car  shop  which  contains 
facihties  for  proper  maintenance  and  even  the  construction  and 
reconstruction  of  car  bodies.  In  fact,  it  would  not  be  impossible 
for  all  the  cars  needed  for  the  immediate  future  to  be  built  in  these 
shops. 

7.  Owing  to  the  transfer  in  1910  of  the  main  electric  gen- 
^y   crating  plant  at  North  Beach  to  the   Sierra  and   San   Francisco 

Power  Company,  the  only  electric  plant  owned  by  the  United  Rail- 
roads is  the  obsolete  station  at  Bryant  Street.  In  case  of  complete 
breakdown  of  the  Power  Company's  hydro-electric  supply,  the 
North  Beach  power  station,  in  addition  to  the  contract  supply  from 
the  City  Electric  Company,  would  be  sufficient  to  operate  the  system. 
There  is  sufficient  reserve  capacity  in  both  power  and  sub-stations 
for  present  but  not  for  future  needs  and  therefore  the  power  system 
must  be  included  in  any  program  of  extension. 

8.  As  the  cable  system  will  probably  never  be  much  enlarged, 
the  present  cable  power  equipment  may  be  left  out  of  consideration. 

9.  It  is  apparent  from  the  above  that  in  order  to  develop  an 
adequate  transit  property  for  San  Francisco  even  exclusive  of  exten- 
sions, a  very  large  amount  of  rehabihtation  work  needs  to  be  un- 
dertaken immediately  by  the  United  Railroads,  in  order  to  forestall 
excessive  maintenance  and  depreciation  later. 

10.  It  m.ay,  of  course,  be  truly  stated  that  a  large  share  of 
this  deferred  maintenance  and  rehabilitation  work  may  be  attrib- 
uted to  the  unexpected  financial  difficulties  due  to  the  direct  loss  of 
about  $5,000,000  gross  earnings  for  the  United  Railroads  system 
alone,  resulting  from  the  fire  and  strike.     However,  this  work  re- 


mains to  be  done,  and  must  be  financed  if  the  traction  properties 
of  San  Francisco  are  to  keep  pace  with  the  city's  rehabilitation  and 
growth. 

11.  Taken  as  a  whole,  the  lines  of  both  the  California  Street 
Cable  Railway  and  the  Presidio  &  Ferries  Railway  are  in  good  con- 
dition, and  comparatively  little  rehabilitation  work  will  be  necessary 
in  the  near  future.  The  property  of  both  roads  (with  the  exception 
of  the  rolling  stock  of  the  Presidio  &  Ferries  Railway,  which  is  in- 
adequate, and  the  car  barn  of  the  California  Street  Company,  which 
affords  insufficient  fire  protection)  is  satisfactory.  Any  expansion  of 
the  Presidio  &  Ferries  system  will  require  increased  facilities  in 
car  house  and  power  plant,  unless  the  City  purchases  power  when 
it  takes  over  the  road  in  1913  or  thereafter.  Recommendations  for 
an  improved  type  of  car  may  be  found  in  Chapter  8. 

DETAILED  RESULTS  OF  INSPECTION 

UNITED   RAILROADS   OF   SAN    FRANCISCO. 

The  operating  property  will  be  taken  up  under  the  following 
heads : 


Track 

Special  Work 
Paving 
Rolling  Stock 


Power  and  Distribution  System 
Car  Houses 
Car  Shops 


Electric  and  Cable  Track 

In  order  to  check  approximately  the  track  mileage  of  record, 
Table  54,  an  inspection  of  all  the  lines  was  made,  for  determining 
location,  condition,  and  type  of  constructioa  The  length  of  track 
found  in  this  inspection  within  the  city  Umits  was  238.62  miles  of 
single  track,  about  2%  less  than  the  United  Railroads  records.  In 
view  of  the  approximate  method  of  measurement  adopted — i.  e., 
scaling  from  verified  trackage  map— United  Railroads  mileage  may 
be  considered  accurate  for  the  purposes  of  this  report. 

Condition  of  Track,  Under  this  head  is  considered  only  the 
actual  physical  condition  of  the  rail  and  joints — neither  depreciation 
nor  the  adequacy  of  the  rail  being  taken  into  account,  except  in  cases 
where  the  rail  is  worn  to  such  an  extent  as  to  make  renewal  neces- 
sary immediately  or  in  the  very  near  future. 

All  of  the  track  is  divided  into  the  following  five  classes  of  con- 
dition, summarized  in  Table  54: 


342 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CONDITION  OF  PHYSICAL  PROPERTY 


343 


:i'- 


•.i 


^  t 

;!  '■ 


* 


110.00  miles. 


52.66 


37.79 


Class  I.  First  class  condition.  No  serious  main- 
tenance work  necessary  in  the  near  future. 

Class  II.  Good  condition  but  in  need  of  slight 
repairs  from  time  to  time.  This  includes  track 
which  is  slightly  corrugated,  with  some  joints  a  little 
battered  or  with  sections  having  poor  sub-structure. 
Such  track  is  in  good  condition,  but  cannot  be  con- 
sidered in  the  first  class. 

Class  III.  Fair  condition  but  in  immediate  need 
of  considerable  maintenance  work.  Track  in  poor 
alignment,  rail  having  slight  surface  kinks,  joints 
slightly  hammered  or  out  of  line,  rail  elevation  un- 
even. Track  listed  under  this  head  is  in  fair  condi- 
tion, but  due  to  poor  upkeep  in  the  past,  considerable 
work  must  be  done  to  bring  it  up  to  a  reasonable 
standard. 

Class  IV.  Poor  condition  and  in  need  of  early 
renewal.  Track  and  joints  battered  and  out  of  line, 
making  track  rough  and  uneven;  rail  elevations  vari- 
able; wheel  flange  starting  to  run  on  groove.  Track 
in  this  class  is  so  far  deteriorated  as  not  to  justify 
extensive  repair. 

Class  V.  Very  bad  condition  and  in  need  of  im- 
mediate renewal.  Track  very  much  battered  and  out 
of  alignment;  joints  shattered  and  out  of  line;  flange 
cuts  deeply  into  groove  or  wagon  tread. 

Service  Sufficiency.  Considered  from  the  standpoint  of  ade- 
quacy for  modern  high-speed  equipment,  it  seems  that  for  the  usual 
street  conditions  encountered,  no  rail  lighter  than  the  present  stand- 
ard 9-inch  106-]h  section  should  be  used.  This  would  retire  the  fol- 
lowing kinds  of  rail,  which  are  listed  in  the  approximate  order  of 
their  adequacy  :* 


27.03 


10.30 


1.  96-tb  7"  trilby  rail '.....     1  49  m 

2.  85-lb  9"  girder  rail 51.63  m 

3.  74y2-tb  8"  tee  rail 2.12 

4.  SO-tb  8"  slot  rail 7.33 

5.  72-]b  center  bearing  rail 1 1 .86 

6.  Miscellaneous  light  tee  rails 33.47 

7.  70-lt)  4^"  girder  rail. 14.64 

8.  51-lb  4"  girder  rail 2.57 

9.  51-ft)  sheared  omnibus  rail 3.41 


m 
m 
m 
m 
m 
m 
m 


Total  single  track   128.52 


m 


les 
les 
les 
les 
les 
les 
les 
les 
les 

les 


•There  are  numerous  sections  which   are   not   separately   indicated   in   this  table,   inas- 
much as  they  approximate  very  closely  some  one  of  the  sections  included. 


I 


Of  these  all  but  the  first  three  sections  are  inadequate  for  first 
class  track  on  paved  streets.  Sections  1,  2  and  3  are  too  light,  but 
so  far  they  have  stood  up  very  well  under  comparatively  heavy  traf- 
fic and  for  the  most  part  are  in  good  condition.  However,  on  ac- 
count of  their  light  weight,  track  laid  with  these  sections,  which  is 
found  to  be  in  need  of  extensive  maintenance  work,  could  be  rerailed 
with  standard  sections  with  the  least  ultimate  expense. 

Considered  from  the  standpoint  both  of  condition  and  adequacy, 
the  situation  is  as  follows: 


GENERAL   SUMMARY 


OF   TRACK   IN    SAN 
AND   ELECTRIC* 


FRANCISCO— CABLE 


Miles, 
Total. 


At     Adequate  rail  in  good  condition 94.72 

B      Rail  adequate  for  lighter  lines,  in  good  condition 41.57 

C      Inadequate  rail  on  unimportant  lines,  in  good  condition. .     16.05 

D      Adequate  rail  needing  repairs 3.80 

E      Inadequate   rail   in   good    condition   on   im- 
portant lines — should  be  renewed n.l7   ^ 

F-G  Inadequate  rail  in  need  of  extensive  repair —  j 

should  be  renewed 33.99    )- 

H      Track  needing  early  renewal  on  account  of 

poor  condition  37.33 


Miles, 
Electric. 

92.97 

41.57 

16.05 

3.80 

9.50 

28.30 

32.02 

238.63       224.21 


82.49 


SUB-CLASSIFICATION— ELECTRIC   TRACKS   ONLY    IN 

SAN    FRANCISCO.* 

Class  Class  Class  Class 

I  II  III  IV 

Adequate   rail 74.56       18.41         3.80  .40 

Rail  adequate  except  for   lines  of 

very  heavy  traffic 27.34        14.23         7.47         4.08 

Inadequate    rail   on   lines   of   very  ^ 

light  traffic  8.94         7.16    1.2083         1819 

Inadequate    rail    which    should    be  I 

replaced   9.44  J 

110.84       49.24       32.10       22.67 


Class 
V 


.6^ 

8.72 
9.35 


Special  Work.  An  examination  of  the  special  work  (Sep- 
tember, 1912)  on  the  United  Railroads  lines  shows  that  there  are 
approximately  654  layouts  in  the  City  of  San  Francisco,  exclusive 
of  those  in  the  car  houses  and  yards.    Of  these  there  were : 

26  solid  manganese  type, 
416  hard-center  type,  and 
212  built-up  layouts. 


•For  detail  by  streets,  see  Table  54,  Appendix. 

flutters   refer  to  classification   by   streets,   Table   54,    Appendix. 


344 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


The  layouts  which  are  jointly  used  with  other  companies  (in- 
cluded in  the  above)  were  as  follows: 

25  solid  manganese  layouts, 
68  hard-center  layouts, 
46  built-up  layouts. 

A  tabulation  showing  the  various  types  of  layouts,  separated 
into  five  classes  of  condition,  is  included  in  the  Appendix,  Table  54. 

In  view  of  the  fact  that  the  built-up  special  work  is  inadequate 
for  heavy  city  traffic,  the  built-up  layouts  which  are  listed  under 
Class  3  (see  Appendix)  are  considered  in  need  of  renewal  in  the 
near  future,  rather  than  in  need  of  maintenance  work. 

Summarizing  the  results  of  this  inspection  from  the  standpoint  of 
future  rehabilitation,  there  were: 

285  layouts  in  first-class  shape; 

238  layouts,  slightly  battered  or  broken.    These  can  be  re- 
paired in  many  cases  by  electric  welding,  and  in  others 
by  improving  the  substructure. 
47  layouts  which  were  in  a  badly  battered  condition,  and 
in  need  of  a  great  deal  of  maintenance  work  either  in 
building  up  the  substructure  or  in  repairing  the  layout, 
or  both. 
84  layouts  in  poor  condition  which  should  be  immediately 
replaced. 


654  total. 

As  a  general  rule,  it  was  found  that  the  special  work  was  in  bet- 
ter condition  than  the  track,  particularly  on  lines  laid  with  light  rail. 

Paving.    The   results   of   paving  inspection   may  be   summar- 
ized by  the  following  classification : 

Class  I — Either  asphalt  or  block  paving  in  first-class  con- 
dition. 

Asphalt  Block 

Double  track  21.6  mi.         15.88  mi. 

Single  track    3.0  mi.  4.94  mi. 

Class  II — Asphalt — fair  condition,  but  in  need  of  minor 
repairs  along  brow.*     Block  paving — uneven  but  intact : 

Asphalt  Block 

Double   track    18.5  mi.         14.3     mi. 

Single  track   1.9  mi.  5.45  mi. 


^Brow  paving  is  defined  as  the  strip  of  paving  next  to  the  rail. 


r 


345 


CONDITION  OF  PHYSICAL  PROPERTY 

Qass  III — Asphalt — poor  condition,  needing  extensive  re- 
pairs along  the  brow  and  minor  repairs  in  the  middle 
section.     Block  paving — very  uneven: 

Asphalt  Block 

Double  track  7.24  mi.  1.10  mi. 

Single  track    1.75  mi.  .... 

Class  IV — Very  bad  condition  and  in  need  of  repaving: 

Asphalt  Block 

Double   track    4.4  mi.  1.13  mi. 


Much  of  the  poor  pavement  is  found  along  lines  which  will  have 
to  be  relaid  or  extensively  repaired,  and  the  repaving  would  there- 
fore not  be  warranted  until  the  track  is  rehabilitated.  This  is  shown 
by  the  following  summary  classified  according  to  joint  condition  of 
rail  and  pavement,  in  miles  of  single  track.  The  third  column  repre- 
sents paving  work  to  be  done  exclusively  of  track  rehabilitation : 


/ 

■.Asphalt  Pav 

ing                  ^ 

- 

"Block  Paving" 

- 

Total  in 

San 

Francisco. 

Joint 

Renewal 

with 

Track. 

Needing 
Separate 
Renewal. 

Total  in 

San 
Francisco. 

J«int 

Renewal 

with 

Track. 

Needing 
Separate 
Renewal. 

Class 

I... 

..     46.20 

1.62 

•   •   • 

36.70 

10.55 

•   •   •    • 

Class 

II... 

..     38.90 

7.24 

•    •    «    • 

34.05 

14.35 

•   •   •    • 

Class 

III... 

..     16.23 

3.22 

13.01 

2.20 

.... 

2.20 

Class 

IV... 

..      8.80 

3.22 

5.58 

2.26 

.... 

2.26 

RoUing  Stock* 

Of  the  620  electric  cars  in  commission,  only  100  may  be  classed 
as  modern,  prepay  equipment.  Of  the  remainder,  249  are  fairly  well 
adapted  to  the  downtown  traffic,  but  may  be  much  improved  by  the 
means  indicated  in  Chapter  9.  The  123  non-prepay  cars  of  the 
1300  class  are  rapidly  becoming  obsolete,  and  are  unsuited  for  ser- 
vice on  the  principal  lines  unless  they  are  rebuilt  into  the  prepay 
type.  Thirty  of  the  cars  used  at  present  on  the  San  Mateo  and 
Cemetery  lines  are  suited  only  for  long-haul  or  interurban  traffic. 

The  remaining  118  cars,  all  of  the  old  "California"  type,  are  ob- 
solete and  unsuited  for  service  within  the  congested  district  where 
many  of  them  are  at  present  operated.  These  cars  should  be  re- 
tired from  service,  or  placed  on  unimportant  lines.  Of  the  cable 
cars  the  five  "trains"  now  operated  on  Pacific  Avenue  are  obsolete, 
and  the  26  half-open,  half-closed  cars  of  the  Powell  Street  type  are 
too  small  for  the  traffic  they  are  called  upon  to  carry.  The  mainte- 
nance of  the  rolling  stock  is  discussed  elsewhere  in  this  report. 

♦See  detailed  equipment  sheet.  Table  29,  Appendix. 


346 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CONDITION  OF  PHYSICAL  PROPERTY 


347 


Car  Barnt 

The  United  Railroads  owns  13  car  houses,  of  which  10  are  used 
for  electric  and  3  for  cable  cars.  Of  the  10  structures  housing  elec- 
tric rolling  stock,  two,  known  as  Kentucky  Street  and  Twenty-ninth 
Street  are,  unless  reconstructed,  unsuited  for  the  present  standard 
cars,  and  are  now  used  only  for  the  old  equipment. 

The  total  capacity  of  the  8  barns  used  for  the  large  equipment 
is  461 — 45-ft.  cars,  allowing  47  ft.  per  car  average.  The  com- 
bined capacity  of  the  Kentucky  and  Twenty-ninth  Street  barns  is 
100 — 34- ft.  cars,  making  the  total  capacity  for  the  ten  barns  561 
cars.  The  Company  owns  612  electric  cars,  and  it  appears,  taking 
their  length  into  consideration,  that  the  present  car  house  facilities 
are  just  about  capable  of  taking  care  of  the  entire  equipment.  How- 
ever, upon  the  delivery  of  the  65  new  cars  recently  ordered,  it  will 
probably  be  necessary  to  provide  another  car  house. 

The  combined  capacity  of  the  cable  car  barns  is  102  cars,  based 
on  an  allowance  of  34  ft.  per  car.  This  is  more  than  sufficient  to 
house  the  present  operated  cable  equipment,  which  amounts  to  only 
49  cars. 

With  the  exception  of  the  Haight  Street  and  Twenty-ninth 
Street  car  houses,  all  have  adequate  facilities  for  repair  and  inspec- 
tion work  as  well  as  car  cleaning.  All  barns  are  supplied  with  facil- 
ities in  the  way  of  chain  hoists  and  tools  to  do  comparatively  heavy 
overhauling  work  in  case  of  emergency,  and  two,  the  Twenty-fourth 
Street  and  Turk  Street  car  houses,  are  supplied  with  air  hoists  and 
machine  tools.  Thus,  with  the  exception  of  three,  all  of  the  car 
houses  are  comparatively  well  equipped  except  with  regard  to  fire 
protection.  The  only  protection  against  fire  is  afforded  by  hose  lines 
fed  from  two-inch  pipes,  and  by  fire  buckets.  None  of  the  car  houses 
are  provided  with  sprinkler  systems.  The  track  layout  at  two  of 
the  barns,  Geneva  Avenue  and  Twenty-fourth  Street,  is  such  that 
cars  could  probably  be  removed  rapidly  in  case  of  fire,  but  at  the 
remaining  car  houses  there  are  only  from  two  to  three  tracks  lead- 
ing out  of  the  barns,  which  would  make  removal  of  the  equipment 
rather  slow.  Modern  standards  require  concrete,  or  at  least  pro- 
tected steel  or  mill  construction  with  isolated  storage  bays  holding 
not  more  than  15  or  20  cars  each.  The  extreme  hazard  to  the  ser- 
vice of  losing  perhaps  one  hundred  cars  in  a  single  fire  is  thus 
avoided. 

Power  and  Distribution  System 

Power  House  and  Power  Supply,  The  United  Railroads  is 
now  mainly  supplied  from  the  Sierra  and  San  Francisco  Power 
Company's  hydro-electric  transmission  system,  built  within  the  last 


three  years.  This  system  is  controlled  by  the  United  Railways  In- 
vestment Company.  Under  the  terms  of  a  44-year  contract  the 
United  Railroads  has  prior  claim  upon  this  Sierra  power  supply  up 
to  28,600  kw.  out  of  a  total  present  plant  capacity  of  50,000  kw.  The 
Power  Company  has  first  option  to  furnish  any  increased  supply 
needed.  For  temporary  fluctuations  an  increase  of  10%  above  the 
maximum,  and  an  additional  increase  of  10%  for  periods  of  not 
over  5  minutes,  or  21%  total,  may  be  drawn  upon  without  notice 
(provided  this  increase  is  within  the  capacity  of  the  apparatus  avail- 
able). 

In  addition  to  this  source,  the  United  Railroads  receives  power 
from  the  steam  turbine  plant  of  the  City  Electric  Company.  This 
power  was  contracted  for  in  1907,  and  during  the  10-year  contract 
term  the  railways  must  absorb  a  fixed  load  of  4,000  kw.  during  20 
hours  and  2,000  kw.  for  the  remaining  4  hours  of  the  day  at  a  price 
of  1.1  cents  per  kw.  h.,  which  is  relatively  high  for  block  operating 
power  under  conditions  giving  practically  92%  load  factor. 

The  Sierra  Company  holds  in  reserve  as  an  emergency  plant 
the  North  Beach  steam  turbine  station,  18,000  kw.  rated  capacity, 
formerly  the  principal  power  plant  of  the  United  Railroads. 
Equipped  with  oil-fired  water-tube  boilers,  this  plant  is  capable  of 
being  started  on  very  short  notice — within  20  minutes — as  steam  is 
kept  up  continually. 

The  old  Bryant  Street  station  is  the  only  steam  plant  now  owned 
by  the  United  Railroads,  as  all  the  other  power  properties  have 
been  disposed  of  (as  far  as  the  generating  and  transmission  equip- 
ment is  concerned)  to  the  Sierra  Power  Company.  During  1909 
and  1910  the  Bryant  Street  station  was  used  daily  for  a  few  hours 
during  peak  load,  but  since  that  time  it  has  been  practically  out 
of  service.  It  can  hardly  be  considered  other  than  a  last  reserve, 
as  the  equipment  is  15  years  old  and  entirely  obsolete.  Its  capa- 
city is  only  3,200  kw.,  with  a  possible  maximum  of  4,500  kw. 

At  the  present  time,  the  maximum  power  demand  of  the  United 
Railroads  system  is  from  25,000  to  28,000  kw.  In  case  of  complete 
breakdown  of  the  Sierra  power,  the  combined  capacity  of  the  City 
Electric,  North  Beach  and  Bryant  Street  stations  would  total  about 
35,000  kw.,  during  peak  load  (assuming  an  overload  capacity  of  50% 
above  rating  for  one  to  two  hours  at  North  Beach).  Thus,  for 
present  power  demand,  both  the  original  source  and  reserve  capacity 
appear  to  be  sufficient. 

The  necessity  for  the  development  of  a  new  power  system  arose 
through  the  extreme  shortage  of  power  brought  about  by  the  electri- 
fication of  the  whole  traction  system  at  once.  Had  not  the  fire 
developed  this  crisis,  the  work  would  have  been  spread  over  a  num- 


348 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


.  j;i 


ber  of  years,  during  which  time  adequate  power  supply  could  have 
been  developed.  It  was  therefore  necessary  for  the  railways  to 
turn  to  other  available  sources,  viz.:  the  Pacific  Gas  &  Electric 
Company,  and  later  the  City  Electric  Company.  And  had  sufficient 
power  capacity  been  available  even  then,  possibly  an  independent 
system  would  never  have  been  needed. 

But  the  records  of  power  service  from  1907  to  the  present  time 
show  that  the  supply  was  at  that  time  inadequate,  and  uncertain. 
Between  1907  and  1910  the  power  interruptions  averaged  17  per 
month,  and  frequently  from  5  to  10  interruptions  per  day;  these 
ranging  from  momentary  to  perhaps  an  hour's  duration.  A  con- 
siderable part  of  these  interruptions  occurred  during  the  rush  hours. 
For  the  last  two  years,  however,  after  the  Sierra  Company  was  able 
to  take  over  the  major  portion  of  the  load,  the  interruptions  have 
averaged  5  per  month — a  reduction  of  about  70%.  There  is  no 
doubt  that  much  unmerited  censure  was  directed  at  the  United 
Railroads'  service  due  to  this  unfortunate  situation  in  regard  to 
adequate  power  supply  arising  largely  as  a  result  of  the  fire, 
which  made  it  impossible  for  the  electric  traction  system  to  show 
to  advantage  in  its  early  days. 

« 

Sub-Stations 

Millbrae    sub-station    1.000  kw.  2  motor  generator  sets 

Bryant  Street  sub-station   9.000  kw.  6  motor  generator  sets 

Turk  Street  sub-station 9,000  kw.  6  motor  generator  sets 

Geneva  Avenue  sub-station 3,000  kw.  2  motor  generator  sets 

Bay  Shore  sub-station   400  kw. 


22,400  kw. 


The  United  Railroads  operates  five  sub-stations  of  modern  type 
and  in  first  class  condition,  having  88  to  90%  conversion  efficiency 
from  alternating  to  direct  current.  The  normal  daily  D.  C.  peak 
load  is  about  23,000  kw.,  with  an  occasional  maximum  of  26,000  kw. 
Thus  at  present,  the  stations  operate  up  to  15  to  20%  overload, 
which  is  well  within  their  capacity.  But  in  case  extensions  are  un- 
dertaken, and  in  any  event  before  the  Exposition  in  1915,  additional 
substation  capacity  will  have  to  be  provided. 

Cable  Power  Stations.  The  three  cable  power  stations 
at  Washington  and  Mason  Streets,  Twenty-fourth  and  Castro 
Streets,  and  Pacific  Avenue  and  Polk  Street,  are  all  operated  nor- 
mally by  electric  motor  drive  and  adequate  for  present  uses.  In 
the  first  named  station  the  original  steam  equipment  is  retained 
as  an  auxiliary  to  insure  continuous  service. 


CONDITION  OF  PHYSICAL  PROPERTY 


349 


Overhead.  Most  of  the  overhead  work  is  of  good  standard 
construction,  using  5"-6"-7"  iron  poles  set  in  concrete.  The  trol- 
ley wire  averages  No.  2/0  B.  &  S.  gauge,  and  is  principally  round 
wire,  with  soldered  suspension  ears.  The  lines  seem  liberally  sup- 
plied with  feeders,  except  on  distant  sections,  as  is  apparent  from 
the  lighting  of  the  cars  during  the  rush  hour. 

Taken  as  a  whole,  the  overhead  construction  may  be  considered 
of  adequate  design  and  in  good  condition.  A  considerable  part 
of  the  feeder  cable  shows  signs  of  worn  insulation,  but  aside  from 
that  is  in  good  shape. 

Underground  Conduit.  The  United  Railroads  owns  un- 
derground conduit  lines  aggregating  162,759  duct  feet,  most  of 
which  is  of  the  tile  or  fibre  duct  type.     The  streets  covered  are : 

Market,  from  East  to  Twelfth 99,342  duct  ft. 

Mission,  from  New  Montgomery  to  Ninth 60,360     "  " 

Mason,  from  Post  to  Sutter. . . .' 1,588     "  " 

Leavenworth,  from  Post  to  Sutter 1,469      "  " 


162,759 


<< 


(( 


Of  this  conduit  only  that  on  Mason  and  Leavenworth  Streets, 
totaling  3057  duct  feet,  is  in  use  at  the  present  time,  the  remain- 
ing 159,702  duct  feet  never  having  been  utilized.  These  conduit 
lines  on  Market  and  Mission  Streets  should  be  put  to  use,  so  as 
to  eliminate  unsightly  overhead  feeders  on  some  of  the  downtown 
streets.  The  copper  replaced  could  then  be  used  elsewhere  on  the 
overhead  network,  with  practically  full  salvage. 

CALIFORNIA  STREET  CABLE  RAILWAY 

The  California  Street  Company  operates  two  cable  lines,  the 
Jones  and  Hyde  Streets  and  California  Street,  totaling  5.36  miles  of 
double  track  or  10.72  miles  of  single  track.  All  of  the  track  has 
been  relaid  since  January  1st,  1909,  with  60  lb  3^"  grooved  girder 
rail  of  special  design,  and  at  the  present  time  is  in  excellent  condi- 
tion. 

There  are  36  special  layouts  in  the  California  Street  system, 
of  which  19  have  already  been  classified  under  "United  Railroads 
property  jointly  operated."  The  remainder  consist  entirely  of 
built-up  layouts,  and  for  the  most  part  are  in  fair  condition. 

The  Company  owns  44  double-end,  single-grip  cable  cars,  of  the 
*'old  California"  type,  which  have  been  built  since  1906,  all  of  the 
old  rolling  stock  having  been  destroyed  at  the  time  of  the  fire.  All 
the  equipment  is  in  good  condition,  and  a  proper  schedule  of  main- 
tenance is  in  force. 


350 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


The  only  car  house  owned  by  the  Company,  at  California 
and  Hyde  Streets,  was  rebuilt  following  the  fire  of  1906,  and 
is  in  fair  condition,  although  hardly  suitable  for  car  storage 
purposes  on  account  of  the  fire  risk.  The  only  fire  protection 
provided  consists  of  a  few  patent  extinguishers  and  hose 
reels,  and  the  track  layout  is  such  that  it  would  be  practically 
impossible  to  remove  the  cars  quickly. 

A  repair  shop  is  operated  in  connection  with  the  car  house, 
and  is  adequate  to  take  care  of  any  work  which  may  come 
up  in  the  ordinary  course  of  operation,  even  to  the  extent  of 
building  or  rebuilding  cars,  trucks  and  grips. 

Power  is  furnished  from  a  steam  plant  in  the  basement 
of  the  main  building,  and  while  old,  the  plant  is  in  sufficiently 
good  condition  for  present  purposes. 

PRESIDIO  AND  FERRIES   RAILWAY 

This    company    operates    about   8.13    miles   of   single    track, 
.3  miles  of  which  is  used  jointly  with  the  United  Railroads. 
The  rail  used  is  as  follows : 

107-109  tb  7"-9"  trilby  rail 70% 

81  tb  4"  trilby  rail  13% 

85  tb  9"  girder  rail 11% 

70  tb  tee  rail   6%, 


100% 


Most  of  the  track  is  in  good  condition. 

There  are  23  special  layouts  on  the  lines  of  this  company, 
of  which  half  are  used  jointly  with  the  United  Railroads.  All 
are  of  the  hard  center  type,  and  in  good  condition. 

All  overhead  construction  is  of  the  span  type,  using  iron 
poles,  and  is  uniformly  in  good  condition. 

The  car  equipment  consists  of  29  single  truck  cars,  which 
were  purchased  from  the  United  Railroads  and  are  of  the  same 
type  as  its  600  class.  While  the  rolling  stock  is  kept  in  good 
condition  by  a  proper  schedule  of  inspection,  maintenance  and 
painting,  the  type  and  motor  capacity  is  inadequate,  especially 
for  other  than  hill-top  service  as  already  reported  in  Chap- 
ter 9. 

One  car  barn  is  owned  by  the  company  at  Union  and  Gough 
Streets,  which  is  just  about  sufficient  to  house  the  entire  equip- 
ment, and  provides  ample  facilities  for  inspection  and  for  removal 
of  cars  in  case  of  fire. 


CONDITION  OF  PHYSICAL  PROPERTY 


351 


Direct  current  power  is  purchased  from  the  United  Rail- 
roads, the  Company  having  no  sub-station  or  power  house 
equipment  of  its  own. 

Car  Maintenance,  United  Railroads 

As  maintenance  of  equipment  forms  one  of  the  most  impor- 
tant elements  of  good  service,  the  organization  and  general 
results  are  here  dealt  with  in  some  detail.  The  five  principal 
departments  of  car  maintenance— machine  shop,  electrical  re- 
pair, car  wiring,  overhauling,  and  car  building— are  now  con- 
solidated under  one  head,  the  master  mechanic,  at  the  Geneva 
Avenue  shops.  Here  all  general  overhauling  and  heavy  re- 
pairing is  done,  while  inspection  and  light  repairs  are  carried 
out  at  the  various  car  barns,  likewise  under  the  direction  of  the 
master  mechanic.  Two  car  houses,  Turk  and  Fillmore,  and  Twenty- 
fourth  and  Utah  Streets,  are  equipped  for  such  overhauling  as  neces- 
sitates removal  of  trucks  and  motors. 

Daily  inspection  at  car  houses  covers  trucks,  brakes,  and 
brake  rigging.  Once  a  week,  a  complete  inspection  is  made  of 
all  equipment,  mechanical  and  electrical,  the  cars  being  held 
out  of  service  in  rotation  for  this  purpose.  Brake  shoes  are 
changed  on  general  inspection  day  if  worn  so  as  not  to  last 
another  week. 

Each  car  is  cleaned  daily,  including  sweeping,  dusting,  and 
cleaning  windows,  and  is  washed  inside  and  out  once  a  week 
on  its  general  inspection  day.  A  vacuum  cleaner  is  being  used 
at  the  Geneva  Avenue  car  house  with  effective  results. 

Every  thirteen  months,  each  car  is  completely  overhauled, 
repaired  and  either  repainted  or  revarnished  as  may  be  neces- 
sary. 

Maintenance  Record.  Neglecting  the  temporary  retrench- 
ment of  maintenance  in  1908  shown  by  the  graphical  record. 
Fig.  98  it  appears  that  since  that  time  a  general  rehabili- 
tation of  the  rolling  stock  has  taken  place.  An  inspection  also 
shows  that  the  important  equipment  has  been  put  in  good  con- 
dition for  service.  The  effectiveness  of  the  work  is  shown  by 
a  decrease  in  the  actual  cost  of  car  maintenance,  and  at  the 
same  time  an  increase  in  mileage.  This  decrease  in  maintenance 
has  amounted  to  40%  in  two  years,  with  an  increase  of  10%  in 
car  mileage,  which  is  equivalent  to  a  saving  of  over  50%. 

Car  painting  was  deferred  from  1907  to  the  summer  of  1909. 
During  1910,  the  cars  were  being  repainted  at  a  rate  of  35 
per  month,  and  as  a  result  of  this  schedule,  81%  of  the  total 


1^ 


352  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

■ION  J.  ARNOLD 


60 


SO 


40 


SO 


20 


I909 


I9IO 


191 1 


1912 


FIGURE  96— MONTHLY   RECORD   OF   CAR   OVERHAULING. 


These  curves  are  of  general  interest  in  that  they  show  the  relative  con- 
dition in  which  the  rolling  stock  of  the  United  Railroads  is  being  maintained. 
The  monthly  record  of  work  done  at  the  Geneva  shops  shows  a  steady  in- 
crease in  car  overhauling  of  nearly  50%  within  the  last  two  years — cor- 
responding to  a  change  from  about  a  24  to  a  13-month  overhauling  schedule. 
The  present  frequency  of  complete  overhauling  is  ample  to  maintain  the 
equipment  in  good  condition. 


P 


CONDITION  OF  PHYSICAL  PROPERTY 

BION  J,  ARNOLD 


353 


60 


1908         1909 


leio 


isn 


19)2 


FIGURE   97— RECORD    OF   CAR   PAINTING   AND    VARNISHING. 

Giving  an  idea  of  the  relative  amount  of  attention  paid  to  the  appearance 
of  rolling  stock.  The  curves  show  a  very  rapid  increase  in  the  cars  repainted 
per  month  up  to  1910  and  since  that  time  a  rapid  decrease,  but  within  the 
two-year  period  500  cars,  practically  all  of  the  old  equipment,  were  repainted. 
Since  1910,  the  number  of  cars  revarnished  per  month  has  shown  a  steady 
increase  until  now  practically  all  of  the  cars  run  through  the  paint  shop  are 
revarnished  only.  The  12-month  schedule  of  cars  passed  through  the  paint 
shop  now  in  force  will  be  ample  if  continued,  and  indicates  very  good  main- 
tenance. 


CONDITION  OF  PHYSICAL  PROPERTY 


355 


FIGURE  98— RECORD  OF  CAR  MAINTENANCE  EXPENDITURES. 
In  fixing  upon  a  reasonable  maintenance  standard  in  a  resettlement 
plan,  it  has  been  necessary  to  determine  the  effectiveness  of  past  maintenance 
work  and  its  relation  to  earnings.  These  curves  show  that  succeeding  the 
abnormal  condition  following  the  fire  and  strike,  the  expenditures  for  car 
maintenance  in  all  its  branches  with  the  single  exception  of  painting  have 
been  increased  by  10%,  resulting  in  a  drop  of  over  50%  in  maintenance  cost 
per  car  mile.  While  this  record  alone  might  indicate  a  general  curtailment  in 
maintenance,  reference  to  other  records  of  the  actual  amount  of  work  done, 
however,  indicates  an  improved  standard.  In  fact,  since  1909,  the  effective- 
ness of  car  maintenance  work  has  greatly  increased,  resulting  in  a  lower 
actual  cost  and  better  conditions  than  formerly. 


equipment  was  gone  over.  The  record,  Fig.  97,  of  cars  pass- 
ing through  the  paint  shop  indicates  that  the  equipment  is  under- 
going effective  maintenance.  The  overhauling  record,  Fig.  96, 
also  indicates  increasing  maintenance— nearly  doubled  since  1910, 
due  to  a  reduction  of  the  overhauling  schedule  from  21  months 
in  1910  to  13  months  in  1912. 

Electrical  equipment  maintenance  record  shows  improved 
operating  conditions  by  consistent  decrease  in  armature  removals 
per  car  mile— 12%  in  two  years.    During  this  time  the  cost  has 

decreased  30%. 

Probably  the  best  index  of  maintenance  is  in  the  number 
of  pull-ins,  or  conversely,  the  number  of  cars  in  operation.  On 
this  system,  car  miles  per  pull-in  increased  from  about  2,000 
for  March,  1910,  to  3,500  in  July,  1912,  an  increase  of  75%.  By 
actual  inspection  on  July  15,  1912,  92%  of  the  equipment  was 
found  to  be  in  service  during  the  rush  hour.  Of  the  balance 
_go;^^_one-third  was  in  the  shops  for  repairs.  This  good  record 
has,  of  course,  no  bearing  on  the  adequacy  of  the  equipment, 
but  rather  indicates  the  policy  of  the  Company  in  the  matter  of 
car  maintenance. 


f ' 

f' 


PART  VI 
FRANCHISE  AND  LEGAL  MATTERS 


Chapter  1 6.  Charter  Amendment  (34) . 

Chapter  1 7.  General  Franchise  Ordinance. 

Chapter  18.  Present  Franchise  Status. 

Chapter  1 9.  Report  on  Taxable  Mileage. 


I 


I  hi 


f  t 


13 


CHAPTER  16 

CHARTER  AMENDMENT  No.  34  * 

Discussion  of  Underlying  Principles 

In  Chapter  /,  dealing  with  Present  Transportation  Conditions,  there  were 
reviewed  verp  hriefl}f  some  of  the  essential  matters  relating  to  fran- 
chises and  regulations  that  must  he  given  serious  attention  before  it  wdl 
be  possible  to  reach  an^  satisfactory^  permanent  settlement  of  the 
various  questions  involved  in  transportation  service  of  San  Francisco. 
This  review  also  emphasized  the  uncertain  status  of  the  railway  cor- 
poration with  regard  to  its  franchises,  the  retarding  effect  of  the 
present  city  Charter  provisions  on  further  investment  of  private  capital 
and  the  possibiiity  of  a  contract-franchise  plan  involving  municipal 
regulation  and  profit-sharing  by  which  the  perplexing  problems  of 
the  past  and  future  might  be  merged  into  that  of  the  present  solution. 
This  chapter  presents  for  consideration  the  basic  principles  of  Charter 
Amendment  No.  34  submitted  to  referendum  vote  on  December  lOtK 
1912.  The  full  text  of  this  Amendment  will  be  found  in  the  Ap- 
pendix hereto. 

There  are  two  distinctly  different  situations  which  call  for  solu- 
tion in  the  pffesent  Charter  revision. 

1st.  The  mitlining  of  future  conditions  pertaining  only  to 
nezv  franchises  granted  subsequent  to  the  passing  of  the  amend- 
ments either  as 

(a)  Trunk  line  franchises,  or 

(b)  Extension  franchises. 

2d.  The  establishment  of  conditions  which  will  make  possible 
effective  operation  under  existing  franchises  and  at  the  same  time 
secure  the  necessary  expansion  of  the  present  system  by  private 
capital  until  such  time  as  the  City  is  able  and  desires  to  take  over 
the  entire  properties  as  a  municipal  project. 

It  is  evident  from  a  study  of  the  proposed  Charter  revision 
amendments  that  no  provision  has  been  made  for  this  latter  and 
most  important  condition,  for,  if  the  proposed  amendments  were 
passed,  any  contract-franchise  plan  that  might  be  developed  and 
that  did  not  conform  to  the  provisions  of  the  new  amendment, 
however  just  and  feasible  the  plan  might  be  for  the  present  sit- 
uation, would  be  illegal  and  impossible  to  carry  out  until  further 
enabling  amendments  were  adopted.  It  therefore  seems  desir- 
able, if  these  amendments  are  to  be  adopted  now,  that  a  section 
be  incorporated  in  the  revised  Charter,  dealing  specifically  with  a 

•Formerly  Preliminary  Report  No.  13.  submitted  Nov.  5.  1912.        .... 


360 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


possible  contract-fanchise  settlement  of  existing  questions,  or 
else  that  definite  provision  be  made  by  means  of  some  form  of  ex- 
emption clause  whereby  such  a  settlement  plan  may  be  evolved  at 
any  time  and  put  into  effect  independent  of  the  Charter  provisions 
dealing  with  new  franchises. 

There  will  follow  a  detailed  analysis  of  the  essential  elements 
of  a  practicable  franchise  policy  for  both  present  and  future  wherein 
are  involved  the  purchasing  power  of  the  City,  the  earning  power 
of  present  franchises,  the  legal  questions  regarding  their  validity, 
the  respective  rights  and  view-points  of  the  City,  the  Corporation, 
and  of  Labor. 

Taking  into  consideration  the  available  facts  discussed  herein 
and  drawing  upon  the  experience  of  other  cities  in  their  effort 
to  find  a  practicable  solution  of  their  transportation  difficulties, 
I  interpret  the  present  traction  situation  in  San  Francisco,  as  fol- 
lows: 

CONCLUSIONS  FROM  PRESENT  CONDITIONS 

1st.  The  City  of  San  Francisco  has  created,  through  the  high 
riding  habits  of  its  citizens,  an  exceedingly  profitable  traction 
field  from  which  it  should  be  possible  with  reasonable  capital  in- 
vestment to  derive,  within  the  limitations  of  a  5-cent  fare,  a  high 
standard  of  service,  as  compared  with  other  cities.  This  condition 
of  service  does  not  take  into  consideration  the  results  of  such 
catastrophes  as  have  occurred  within  recent  years  to  curtail  the 
possibilities  of  the  system. 

2d.  The  powers  of  regulation  over  public  utilities  vested  in 
the  municipalities  of  California  are  exceedingly  broad  as  com- 
pared with  those  of  the  older  cities  of  the  East,  and  comprehend- 
ing supervisory  power  over  rates,  service,  equipment  and  capital- 
ization, the  reasonable  exercise  of  these  powers  should  place  the 
City  in  a  most  fortunate  position  with  respect  to  utility  properties 
organized  after  these  powers  had  been  confirmed.  But  before 
these  powers  were  established,  conditions  were  less  fortunate  from 
the  City's  standpoint,  as  a  result  of  rights  granted. 

3rd.  The  railway  corporation  is  in  unquestionable  possession 
of  the  best-paying  city  streets  for  a  long  term  of  years,  during 
which  time  it  will  be  able  to  earn  out  of  the  property  nearly 
three  times  its  present  liberal  capitalization,  provided  of  course 
that  in  the  meantime  it  renders  adequate  service  over  its  lines 
now  established. 

4th.  Being  in  possession  of  the  short-haul  and  most  profit- 
able lines,  it  will  be  in  a  better  and  better  position  as  time  goes 
on  to  earn  large  returns,  for  the  reason  that  the  City  has  no  power 


CHARTER  AMENDMENT  34 


361 


to  compel  extensions;  consequently,  the  poor-paying  extensions  will 
either  have  to  be  borne  by  the  municipal  system,  or  else  the  de- 
velopment of  the  city  grossly  retarded. 

5th.  It  is  a  fact  that,  even  if  the  franchises  of  a  large  por- 
tion of  the  city  expired  at  a  given  time,  the  pressure  of  public 
necessity  would  absolutely  require  the  corporation  to  continue 
service  over  the  unexpired  lines  until  such  time  as  the  City  was 
in  a  position  to  operate  them  under  a  satisfactory  system  of  rout- 
ing, so  that  the  earning  power  of  the  remaining  fragments  of  the 
system  would  continue  for  some  time. 

Since  there  is  nothing  in  the  present  franchises  requiring  the 
maintenance  of  the  system  at  a  higher  standard  than  that  neces- 
sary to  give  actual  operation,  it  is  quite  probable  that  a  general 
rehabilitation  of  the  system  would  be  necessary,  requiring  per- 
haps two  years,  before  the  City,  even  though  it  had  possession, 
would  be  in  a  position  to  operate  the  new  system  efficiently. 

6th.  Owing  to  the  fact  that  the  City  has  embarked  upon  a 
fixed  policy  of  municipal  ownership  and  possibly  competition, 
the  Corporation  does  not  feel  justified  in  making  any  extensions, 
and  in  fact  cannot  obtain  funds  therefor  from  private  investors 
at  reasonable  prices.  The  City  therefore  must  face  a  situation 
where  the  Corporation  will  continue  to  reap  heavier  and  heavier 
profits  from  its  short-haul  lines,  without  making  the  necessary 
extensions.  The  effect  which  this  policy  has  had  upon  the  devel- 
opment of  the  city  is  already  only  too  apparent  and  it  is  perti- 
nent to  reflect  what  the  condition  would  be  seventeen  years  hence, 
if  this  policy  were  to  be  continued. 

7th.  At  the  present  time-  the  purchasing  power  of  the  City 
approximates  only  $50,000,000  for  all  utility  purposes,  and  if  water 
bonds  are  excluded  from  the  debt  limit,  this  purchasing  power 
could  be  exercised  for  the  acquisition  of  street  railway  property. 
These  funds,  while  more  than  sufficient  to  acquire  the  actual  physical 
property,  would  probably  fall  short  of  what  the  present  railway 
companies  would  consider  reasonable,  including  franchise  values 
under  the  contractual  relations  embodied  in  the  present  franchises. 

Moreover,  it  has  been  shown  that  the  purchasing  power  of  the 
City,  now  entirely  pre-empted  for  other  enterprises,  will  require  an 
increase  of  at  least  one-third  in  the  bonding  limit  for  railways  alone. 
And  unless  such  a  progressive  increase  is  made,  the  purchasing 
power  will  become  more  and  more  inadequate  as  time  goes  on  and 
expensive  rapid  transit  projects  develop. 

8th.  Financial  credit  is  in  most  cases  a  function  of  stability 
of  property  and  efficiency  of  management.  Therefore,  the  ques- 
tion whether  the  City  can  underwrite  its  utilities  at  a  lower  rate 


362 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


of  interest  than  private  capital  will  accept  depends  upon  these  two 
considerations.  And  the  City  must  not  lose  sight  of  the  effect  that 
a  wholesale  expansion  of  its  municipal  undertakings  would  have 
upon  its  credit,  and  especially  with  reference  to  the  securities  pre- 
viously issued. 

9th.  The  Corporation,  on  the  other  hand,  is  beginning  to  ex- 
perience, for  the  first  time  in  its  history,  the  pressure  of  regulation 
and  supervision,  both  from  the  Municipality  and  the  State,  and 
owing  to  a  loss  in  earnings  of  approximately  $5,000,000  from  the 
fire  and  strike,  it  finds  itself  in  a  financial  position  not  contem- 
plated at  the  time  of  its  organization.  Not  having  elected  to  pro- 
vide for  such  a  contingency,  it  is  difficult  for  it  to  absorb  these  losses 
under  the  heavy  burden  of  fixed  charges  and  the  pressure  for 
dividends. 

10th.  The  present  condition  of  the  property,  in  spite  of  the 
heavy  renewals  and  betterments  that  have  already  taken  place  since 
the  fire,  is  such  as  to  require  a  continued  program  of  rehabilitation, 
necessarily  involving  heavy  expenditures,  only  a  portion  of  which 
may  be  capitalized  as  betterments  and  additions.  The  nature  of 
these  renewals  is  such  that  to  capitalize  them  in  toto  would  be  a 
duplication  of  capital  unwarranted  in  modern  systems  of  accounting. 
The  Corporation,  therefore,  must  find  itself  confronted  with  the 
necessity  of  retiring  this  extinguished  value  out  of  earnings  which 
will  necessarily  cut  deeply  into  the  contemplated  return. 

11th.  The  attitude  of  Labor,  while  at  present  passive,  may  be- 
come serious  from  time  to  time  in  the  future  as  it  has  in  the  past, 
although  not  now  apparently  imminent,  as  railway  wages  in  San 
Francisco  are  somewhat  higher  than  in  other  parts  of  the  coun- 
try, being  exceeded  in  but  one  instance  by  a  Coast  city.  However, 
the  determination  of  a  proper  wage  scale  is  an  ever-recurring 
problem  and  with  the  present  tendency  toward  increasing  prices, 
it  seems  but  a  question  of  time  when  the  wage  question,  in  addition 
to  those  of  financing,  franchises,  and  regulation,  will  combine  to 
render  increasingly  difficult  the  operation  of  the  Corporation  upon 
its  present  basis  of  capitalization. 

12th.  The  Charter  wage  scale  now  in  force,  as  applicable  to 
nrivate  corporations,  will  be  shown  later  to  be  a  practical  impossi- 
bility with  a  5-cent  fare  under  any  normal  conception  of  adequate  ser- 
vice or  reasonable  operating  ratio.  In  street  railway  operation 
more  than  in  any  other  public  utility,  the  time  limit  for  working 
hours  and  the  high  minimum  wage  imposed  by  the  Charter,  work 
exactly  opposite  to  the  provision  of  adequate  rush  hour  service. 
The  adoption  of  this  wage  scale  would  prevent  the  Corporation 
from  earning  a  reasonable  return  upon  its  present  bonded  debt,  to 
say  nothing  of  attempting  to  earn  a  return  upon  its  present  cap- 


CHARTER  AMENDMENT  34 


363 


italization.  Even  if  a  reasonable  return  upon  the  value  of  the  phys- 
ical property  only  were  under  consideration,  the  operating  ratio 
under  this  Charter  wage  scale  would  be  higher  than  justifiable 
under  a  5-cent  fare,  if  adequate  service  is  demanded  from  the  Com- 
pany. 

The  wage  question  should  be  settled  from  time  to  time  as 
new  conditions  arise,  with  due  consideration  for  the  financial  and 
industrial  conditions  of  the  community,  and  it  therefore  is,  in  my 
judgment,  an  economic  error  to  legislate  wages  into  a  Charter. 

13th.  An  analysis  of  the  possibilities  of  the  retirement  of  in- 
vested capital  during  various  periods  of  maturity  and  at  various 
rates  of  interest  shows  that  it  is  practically  impossible  to  retire 
out  of  earnings  street  railway  investments  within  so  short  a  period 
as  25  years— the  limit  of  franchise  term  under  the  present  Charter— 
and  earn  a  fair  return  upon  such  investment.  This  arises  from  the 
fact  that  the  necessary  investment  in  property  is  three  or  four 
times  the  annual  earnings,  so  that  the  annuity  rate  for  a  term  of 
25  years  may  be  as  high  as  11%  of  the  gross  earnings,  which  rep- 
resents a  much  larger  proportion  of  the  gross  earnings  than  can 
possibly  be  appropriated  for  the  retirement  of  the  investment  under 
a  5-cent  fare.  Consequently,  the  proposed  Charter  should  be  changed 
so  as  to  either  materially  lengthen  the  franchise  term,  provide  for 
an  indeterminate  franchise,  or  make  provision  for  protecting  the 
investment  in  the  property  after  the  expiration  of  a  determinate 
franchise  until  such  investment  can  be  amortized  out  of  the  earn- 
ings at  a  reasonable  annual  rate.  This  can  be  effectively  accom- 
plished by  the  issuance  of  long-term  bonds  by  the  Corporation  with 
the  City's  consent,  and  with  definite  provision  for  the  assumption 
of  this  underlying  debt  by  the  City  at  the  end  of  the  franchise  term. 

14th.  In  perfecting  a  franchise  plan  for  the  present  as  well  as 
the  future,  it  is  most  important  to  appreciate  the  seriousness  of 
and  to  provide  for  the  amortization  or  decapitalization  of  that  part 
of  the  original  and  subsequent  investment,  which  is  not  now  repre- 
sented by  actual  tangible  property,  but  which  expenditure  never- 
theless was  incurred  in  order  to  create  the  properties  as  they  at 
present  exist;  also  the  additional  capital  liability  with  which  the 
properties  were  burdened  over  and  above  the  necessary  expendi- 
tures just  mentioned. 

Obviously,  there  are  only  two  plans  upon  which  a  property 
may  be  organized : 

First,  when  it  is  operated  to  extinction  at  the  end  of  an  ex- 
isting franchise  term ; 

Second,  when  it  is  operated  as  a  continuing  property  in  an- 
ticipation of  renewed  grant,  or  sale  to  the  City. 


I 


364 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


I;'    I, 

'I     Isl 

,1    •  P 


t 

i 


II. 


Ill 


If  operated  to  extinction,  it  is  evidently  incumbent  upon  the  Com- 
pany to  retire  all  of  its  capital  liability,  both  tangible  and  intangi- 
ble; but  if  the  property  is  to  be  continued  as  will  unquestionably 
be  the  case,  it  is  economically  unnecessary  to  burden  the  com- 
munity with  the  necessity  of  creating  a  property  free  of  debt  within 
the  short  life  of  ordinary  franchises.  Therefore,  the  first  duty  of 
the  Corporation  should  be  to  decrease  its  capital  account  by  amort- 
izing out  of  its  earnings  all  of  this  so-called  intangible  value. 

Summarizing,  it  is  my  desire  to  convey  from  the  above  the  firm 
conviction  now  in  my  mind,  reached  only  after  detailed  considera- 
tion of  these  various  questions,  that  the  present  problem  is  by  no 
means  one-sided;  that  the  three  factors  in  the  problem— City,  Cor- 
poration and  Labor — are  equally  involved ;  and  that  any  settlement 
of  these  difficulties  that  is  destined  to  achieve  permanent  and  sat- 
isfactory results  must  be  in  the  nature  of  an  attempt  to  secure 
definite,  practicable,  working  results,  rather  than  to  strive  for  the 
perpetuation  of  individual  rights,  all  of  which  are  more  or  less 
questionable.  The  great  objects  are: 
I.     Adequate  service ; 

The  protection  of  actual  investment,   whether  municipal  or 

corporate ;  and 
The  highest  rate  of  wages  consistent  with  the  limitations  of 

a  5-cent  fare,  and  the  proper  maintenance  and  renewal  of 

the  property. 

Supplementary  to  these  are: 

(a)  The  method  of  regulating  the  utility. 

(b)  The  method  of  decapitalizing  obsolete  investment  and 
intangible  values. 

(c)  The  determining  of  the  question  of  whether  the  in- 
vestment shall  be  a  continuing  one  or  be  decapitalized  to 
extinction;  and  if  the  latter,  the  fixing  of  the  period  long 
enough  to  make  it  practicable  under  a  5-cent  fare. 

The  proper  vehicle  for  the  accomplishment  of  these  objects  is 
the  modification  of  the  present  Charter  by  suitable  enabling  amend- 
ments which  will  empower  the  Board  of  Supervisors  to  work  out 
and  submit  to  a  referendum  vote  suitable  adjustment  franchises 
which  will  eliminate  present  contractual  relationships  and  place  the 
City  in  position  to  substitute  others  therefor  which  will  secure  the 
three  objects  above  enumerated.* 

*  Upon  the  submission  of  the  preceding  summarization,  the  Board  of  Supervisors 
decided,  after  discussion,  to  proceed  upon  the  theory  of  submitting  to  the  electors  a 
broad  enabling  act  instead  of  a  detailed  franchise  code,  and  appointed  to  draft  such  an 
act  a  special  committee  consisting  of  Delos  F.  Wilcox.  Chief  of  the  Franchise  Bureau. 
Public  Service  Commission,  New  York  City;  E,  A.  Walcott,  President  of  the  Civil  Ser- 
vice Commission,  City  of  San  Francisco,  and  Bion  J.  Arnold.  This  committee  reported 
November  7th,  1912,  and  the  amendments,  after  thorough  discussion  by  the  Supervisors 
and  others,  were  with  slight  modifications,  unanimously  adopted  on  the  same  date. 


CHARTER  AMENDMENT  34 


365 


In  the  complete  amendments  as  finally  adopted,  were  included 
the  following  supplementarv  amendments: 

Article    XII,    Chapter    I,    "Acquisition    of   Public   Utilities,"   being    Sections    1    to    16, 

inclusive,  of  Article  XII  of  the  present  Charter. 

Article  XII,  Chapter  II,  Sections  1  and  2,  inclusive,  "Construction  of  Public  Utilities." 
Article  XII,  Chapter  III,  Sections   1  to  5,   inclusive,   relating  to  the  "Department  of 

Public   Service"   and   creating  a  Public   Service   Commission   for  the   City  and   County   of 

San    Francisco. 

These    supplementary    amendments,    Chapters    II    and    III,    as    finally    passed    by   the 

Board    of    Supervisors,    contained    most    of    the    important    revisions    that,    to    me,    seemed 

necessary  from  a  study  of  the  amendments  as  originally  drafted. 

SUPPLEMENTAL  DISCUSSION 

Tlie  Present  Charter,  which  went  into  effect  in  1907,  in  its 
general  terms  was  designed  to  empower  the  Board  of  Supervisors 
with  broad  regulative  powers  and  control  over  public  utilities 
operating  within  the  City  and  County  of  San  Francisco.  Appar- 
ently, none  of  these  powers,  as  outlined  therein,  are  retroactive — 
that  is,  they  do  not  apply  to  franchises  granted  prior  to  1907 
unless  specific  provisions  in  the  franchises  anticipated  such  future 
revision  as  actually  took  place. 

The  Board  of  Supervisors  has  power  to  determine  rates  and 
prescribe  service,  wages  and  hours  of  labor,  and  to  examine  books 
and  records,  or  cause  to  be  made  through  arbitration  proceedings 
valuations  of  property  which  the  City  desires  to  purchase.  The 
Charter  declares  for  municipal  ownership  of  utilities  with  power 
to  take  over  traction  properties  at  a  fair  value,  indluding  bonus, 
but  excluding  franchise  value.  The  franchise  term  is  limited  to 
25  years  and  awarded  to  the  highest  bidder  upon  the  basis  of 
percentage  of  gross  receipts.  Conditions  surrounding  construc- 
tion and  operation  of  utilities  are  specified,  failure  to  comply  with 
them  working  immediate  forfeiture  of  the  franchises,  which  the 
Board  of  Supervisors  has  no  power  to  relieve.  Roadbed  and  fix- 
tures become  the  property  of  the  City  at  the  expiraton  of  the 
franchise  term. 

Having  declared  for  ultimate  municipal  ownership,  the  Board 
of  Supervisors  is  empowered  to  buy  or  construct  utilities  when 
public  necessity  demands;  but  the  City's  bonded  debt  is  limited 
to  15%  of  the  assessed  realty  value  with  a  maximum  limit  of  75 
years'  life  of  bond  issues,  redemption  to  be  commenced  within 
18  years. 

A  minimum  wage  scale  of  $3.00  for  an  eight-hour  day  to  ba 
completed  within  ten  hours,  with  a  one  and  one-half  time  rate  for 
over-time,  is  specified  to  apply  to  a'U  new  franchises  granted  to 
privately  owned  street  railway  companies,  but  the  same  condi- 
tions are  not  specified  for  those  employed  in  municipal  enterprises. 
The  Charter,  instead  of  making  this  condition  imperative  upon 


it  ] 


366 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


the  City,  exempts  it  from  the  time  limit  of  ten  hours  in  which  the 
eight-hour  service  must  be  performed,  and  also  the  compulsory 
payment  of  a  one  and  one-half  time  rate  for  over-time.* 

Proposed  Charter  Amendments,  In  order  to  facilitate  the 
fullest  understanding  of  the  principles  and  purposes  underlying 
the  construction  of  this  proposed  Charter  Amendment  No.  34, 
the  following  discussions  of  the  underlying  principles  are  appended. 
Briefly  expressed,  the  purposes  of  the  amendment  are : 

1st.  To  provide  in  the  Charter  a  "blanket"  enabling  act, 
outlining  the  general  terms  under  which  detailed  municipal  ordi- 
nances may  later  be  prepared  by  the  Board  of  Supervisors,  sub- 
ject to  the  referendum  vote. 

2d.  To  establish  the  foundation  for  a  comprehensive  franchise 
or  administrative  code,  defining  in  specific  terms  the  conditions 
and  limitations  under  which  all  new  franchises  may  be  granted  by 
the  City  to  private  operators. 

3d.  To  empower  the  Board  of  Supervisors  to  carry  out  a  com- 
prehensive resettlement  or  adjustment  franchise  policy  by  means 
of  which  existing  grants  to  private  operators  may  be  merged  into 
those  of  new  or  adjusted  grants  containing  specific  conditions  cal- 
culated to  remove  the  present  obstacles  to  adequate  service  and 
continued  expansion. 

It  has  been  deemed  essential  in  the  preparation  of  these  amend- 
ments that  detailed  matters  relating  to  the  granting  of  franchises 
be  incorporated  in  such  a  comprehensive  franchise  code,  rather 
than  in  the  City  Charter;  that,  on  the  other  hand,  a  City  Charter 
should  constitute  a  simple  declaration  of  principles  only,  by  rea- 
son of  the  wide  variation  in  the  conditions  surrounding  the  grant- 
ing of  franchises  to  different  utilities  which  will  necessarily  change 
from  time  to  time.  The  Charter  amendments  are  designed  to  cover 
all  manner  of  utilities  which,  in  the  expressed  determination  of  the 
City,  fall  within  the  scope  of  its  operations.  The  franchise  code, 
on  the  other  hand,  should  cover  separately  each  of  the  various 
utilities  to  be  encountered  where  variations  from  the  general  prin- 
ciples therein  expressed  need  to  be  specified. 

•This  discrimination  falls  particularly  heavy  upon  a  street  railway  company,  owing 
to  the  fact  that  its  two  periods  of  daily  maximum  or  rush  hour  service  feach  two  or 
three  hours  long)  come  so  far  apart  that  men  employed  for  one  of  these  periods  cannot 
be  employed   for  the   other   period   without   the   payment   of  overtime;    otherwise   the   em- 

{>loyment  of  additional  men  is  necessary,  thus  resulting  in  the  payment  of  a  proportionately 
argc  amount  of  wages  for  which  no  service  has  been  rendered.  It  would  seem,  therefore, 
that  street  railway  employees,  owing  to  these  unavoidable  conditions  of  the  business  in 
which  they  are  engaged,  should  be  willing  to  extend  the  total  period  during  which  their 
services  are  rendered,  provided  they  are  paid  a  suitable  wage  per  hour  with  a  reasonably 
minimum  wage,  especially  since  the  total  time  of  actual  service  is  reasonably  short,  and 
since  they  are  free  to  attend  to  their  own  affairs  during  the  interval  between  rush  hour 
periods.  As  such  short  runs  are  usually  and  properly  assigned  to  students  or  apprentices 
in  the  business,  and  the  full-time,  regular  runs  are  reserved  for  the  more  experienced 
men,  a  reasonable  disposition  of  the  wage  question  along  these  lines  should  be  accom- 
plished, and  by  this  means  secure  adequate  service  under  a  5-cent  fare. 


CHARTER  AMENDMENT  34 


367 


In  order  to  carry  out  the  provisions  of  franchises  hereafter  to 
be  granted  under  ordinances  passed  by  the  Board  of  Supervisors 
in  accordance  with  the  terms  of  the  Charter  amendments    there 
is  created  in  other  Charter  amendments  to  Article  XII,  Chapters 
II  and  III,  a  Public  Service  Commission  for  the  City  and  County 
of  San  Francisco,  consisting  of  three  members  appointed  by  the 
Mayor   each  for  a  term  of  six  years,  except  those  first  appointed, 
whose  terms  end  July  1,  1915,  July  1,  1917,  July  1,  1919,  respec- 
tively    This  Commission  is  to  have  charge  of  the  construction,  ex- 
tension and  operation  of  all  municipally  owned  and  operated  public 
utilities,  the  harbor  and  water-front  and  all  works  located  thereon 
for  the  use  of  commerce.    This  Commission  will  also  exercise  con- 
trol over  such  other  public  utilities  as  the  Board  of  Supervisors  may 
from  time  to  time  prescribe,  but  which  are  not  covered  by  this 
Charter.    It  is  also  authorized  to  enter  into  contracts  for  construc- 
tion or  for  materials  necessary  for  the  construction  or  operation 
of  such  utilities,  as  well  as  to  exercise  all  other  powers  over  public 
utilities  elsewhere  conferred  by  the  present  Charter  on  the  Board  of 
Public  Works. 

Letter  of  Transmittal— Amendment  34 

To  the  Honorable, 

The  Board  of  Supervisors  of  the 

City  and  County  of  San  Francisco. 

Gentlemen: 

In  accordance  with  your  instructions,  zi'e  have  prepared  a  draft 
of  Charter  Amendment  No,  34,  relative  to  the  granting  of  fran- 
chises upon  zvhich  we  have  been  able  substantially  to  agree.  Such 
amendment  is  submitted  herewith  tinth  our  recommendation  that  it 
be  adopted  for  submission  to  the  people  at  the  Special  Election  on 
December  loth,  1912,  In  this  amendment  we  have  attempted  to 
cover  in  general  terms  the  entire  subject  of  the  granting  of  fran- 
chises leaving  to  a  general  ordinance  to  be  enacted  later  by  the 
Board  of  Supervisors  and  ratified  by  the  people  the  more  detailed 
procedure  which  may  be  regarded  as  essential  to  protect  the  City's 
interests  in  the  granting  of  franchises  in  the  future.  The  amend- 
ment presented  contains,  we  believe,  all  or  practically  all  the  essen- 
tial features  of  a  general  franchise  policy,  in  accordance  with  which 
the  City  should  be  able  to  work  out  satisfactory  practical  results. 
Respectfully  submitted, 

(Signed)  DELOS  F.  WILCOX,  E.  A.  WALCOTT, 

^    ^  BION  J.  ARNOLD, 

Submitted  November  7th,  1912. 


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Synopsis,  by  Delos  F.  Wilcox,  of  Charter  Amendments  Re- 
lating to  various  Public  Utility  Franchises  Drafted  by 
the  Special  Committee  Appointed  by  the  Board  of 
Supervisors. 

The  Board  of  Supervisors  has  no  authority  to  grant  franchises 
for  any  public  utility  except  in  accordance  with  the  provisions  of 
the  Charter. 

The  outstanding  street  railroad  franchises  make  no  provision 
for  extensions  into  outlying  territory. 

The  outstanding  gas,  electric  and  water  franchises,  acquired 
under  the  Constitution  of  1879,  cover  only  such  streets  and  parts 
of  streets  as  were  actually  occupied  with  mains  prior  to  the  adop- 
tion of  the  Constitutional  Amendments  on  October  10th,  1911. 

Consequently,  no  extensions  of  street  railroads,  gas  or  water 
pipes,  or  electric  lines  can  be  made  under  existing  franchises,  even 
if  the  companies  are  willing  to  make  them.  In  every  case,  new 
franchises  are  required. 

The  provisions  of  the  existing  Charter  relative  to  the  grant  of 
franchises  have  proved  to  be  impractical,  as  they  tend  to  penalize 
the  companies  for  doing  what  the  City  wants  them  to  do,  namely, 
extend  their  lines.  For  a  company  to  accept  a  franchise  for  an 
extension,  under  the  present  Charter,  the  extension  would  have  to 
be  unusually  profitable  taken  by  itself,  while  in  most  cases  where 
the  extensions  would  have  to  be  carried  by  the  profits  earned  on 
the  main  lines  or  in  the  areas  of  dense  service,  there  is  nothing 
whatever  to  induce  the  companies  to  build  and  the  City  has  no 
power  under  existing  franchises  to  make  them  build. 

This  situation  has  long  been  critical  in  regard  to  street  rail- 
ways, and,  under  the  recent  decision  of  the  Supreme  Court  in 
the  Russell  case,  will  soon  become  equally  critical  as  to  water,  gas 
and  electric  service. 

These  conditions  made  necessary  the  proposed  amendment  to 
the  Charter  relative  to  franchises.  If  this  amendment  is  defeated 
there  will  not  be  another  opportunity  to  amend  the  present  Charter 
until  two  years  hence. 

The  proposed  franchise  amendment  is  based  upon  the  City's 
declared  policy  of  ultimate  municipal  ownership.  Not  only  do  all 
franchises  require  a  three-fourths  vote  of  the  Board  of  Supervisors, 
but  in  case  they  are  vetoed  by  the  Mayor,  they  can  be  repassed  only 
by  a  five-sixths  vote.  Moreover,  the  Mayor  can,  if  he  wishes,  insist 
upon  a  referendum,  and  every  grant  of  a  new  franchise  to  renew 

m 


CHARTER  AMENDMENT  34 


369 


or  replace  an  existing  one  must  be  submitted  to  the  people.  Entirely 
new  grants  and  grants  for  extensions  are  subject  to  the  sixty-day 
optional  referendum  procedure  for  due  publicity,  and  time  for  de- 
liberate consideration  is  carefully  provided  for.  The  right  of  the 
City  to  take  over  the  franchise  and  property  at  any  time  is  expressly 
stipulated,  and  in  order  that  this  power  of  purchase  may  be  some- 
thing more  than  mere  power  on  paper,  it  is  required  that  provision 
shall  be  made  in  the  franchise  itself  for  the  accumulation  of  a  pur- 
chase fund  out  of  earnings,  so  that  the  property  will  actually  be 
paying  for  itself,  and  the  City  will  be  getting  into  a  better  position 
in  regard  to  it  every  year. 

On  the  other  hand,  under  the  proposed  franchise  plan,  the 
actual  investment  of  capital  in  any  utility  enterprise  would  be 
amply  protected  and  wou'ld  be  allowed  to  earn  a  fair  return  and 
be  sure  of  not  losing  out  in  the  end.  The  requirement  in  the 
present  Charter  that  a  fixed  percentage  of  gross  receipts  men- 
tioned in  the  Charter  itself  must  be  paid  whether  the  utility  or 
the  extension  is  able  to  pay  even  operating  expenses  or  not  has 
been  cut  out. 

The  existing  provision  that  the  property  in  the  streets  shall 
revert  to  the  City  without  payment  at  the  expiration  of  twenty- 
five  years  and  forbidding  a  re-grant  beyond  that  time  is  also 
eliminated,  and  in  place  of  it  is  put  a  more  elastic  provision  to  the 
effect  that  part  or  all  of  the  capital  must  be  retired  within  the 
twenty-five  year  maximum  period  for  original  grants,  but  that  if 
the  capital  has  not  all  been  retired  within  that  time  and  if  the  City 
does  not  choose  to  buy  the  property,  the  holder  of  the  franchise 
shall  be  entitled  to  fifteen  years  more  to  get  his  money  out. 

The  existing  minimum  wage  provision  as  applied  to  franchises 
is  eliminated  from  the  Charter  for  the  reason  that  it  seems  better 
to  leave  the  whole  matter  of  wages  to  be  negotiated  in  connection 
with  each  particular  franchise  or  between  the  employees  and  the 
owners  of  the  utility. 

It  makes  the  Charter  conditions  less  forbidding  to  capital,  and 
does  not  prevent  the  establishment  of  a  minimum  wage  in  the 
franchise  itself  if  it  can  be  agreed  upon  at  the  time.  The  eight- 
hour  day  is  kept,  but  the  provision  is  liberalized  with  reference  to 
street  railways  so  as  to  make  the  eight-hour  day  actually  work- 
able under  the  conditions  of  that  business,  which  requires  the 
employment  of  a  great  many  extra  men  for  the  rush  hours,  morn- 
ing and  night,  if  the  people  are  to  have  reasonable  service.  As 
stipulated  in  the  proposed  amendment,  the  eight  hours'  work  of 
the  operating  force  of  a  street  railway  must  be  completed  within 
thirteen  hours,  while  in  all  other  utilities  the  eight  hours'  work 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


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must  be  completed  within  ten  hours.  This  change  removes  a 
barrier  that  now  practically  prohibits  the. enlistment  of  capital  in 
street  railway  building. 

The  existing  prohibition  of  all  exclusive  franchises  for  pipes, 
wires  or  conduits,  which  was  based  on  the  constitutional  provision 
in  force  prior  to  1911,  has  been  liberalized  so  that  exclusive  fran- 
chises may  be  granted  which  wou'ld  tend  to  induce  private  capital 
to  enter  outlying  fields.  But  the  interests  of  the  City  are  safe- 
guarded by  requiring  that  any  such  franchise  must  be  subject  to 
purchase  and  must  provide  for  extensions  of  the  plant  as  the 
public  needs  require. 

Moreover,  under  the  amendment,  the  Board  of  Supervisors 
does  not  need  to  wait  for  anybody  to  apply  for  a  franchise  for  an 
extension  or  for  a  new  utility,  but  may  on  its  own  motion  declare 
the  necessity  for  the  construction  of  such  extension  or  new  utility, 
and  advertise  for  bids.  The  City  may  advertise  in  all  the  financial 
centers  of  the  world,  if  necessary,  calling  attention  to  the  oppor- 
tunity for  investment. 

But,  after  all,  the  most  important  provisions  of  this  amend- 
ment relate  to  a  possible  resettlement  of  the  franchises  of  existing 
utilities  to  the  end  that  in  return  for  the  practical  guarantee  of 
their  fixed  investment  and  the  new  money  put  in  from  time  to  time, 
they  shall  surrender  their  outstanding  franchises  and  come  in 
under  a  new  deal  by  the  terms  of  which  the  City  will  get  the 
right  peaceably  to  acquire  the  property  by  paying  a  fixed  price 
therefor,  and  the  companies  will  obligate  themselves  in  the  mean- 
time to  make  extensions  and  begin  to  retire  their  capital  out  of 
earnings. 

As  an  extra  safeguard,  the  City  may  provide  for  the  transfer 
of  the  property  to  a  new  company,  if,  through  persistent  failure 
of  the  old  company  to  co-operate  in  good  faith  in  carrying  out 
the  spirit  of  the  agreement,  it  seems  useless  to  expect  good  re- 
sults from  the  management  then  in  control,  and  if  the  City  is  not 
then  in  a  position  to  take  the  utility  over  for  municipal  operation. 
At  the  same  time,  the  Company  will  be  protected  against  ca- 
pricious or  corrupt  action  on  the  part  of  the  City  authorities  by 
the  requirement  that  any  new  company  may  be  required  under 
the  terms  of  the  franchise  to  pay  a  bonus  to  the  owner  of  the 
property  in  addition  to  what  the  City  would  have  to  pay  if  the 
property  were  being  taken  over  for  public  ownership. 

This  licensee  provision  is  not  made  obligatory,  but  may  be 
inserted  in  a  resettlement  franchise  if  the  City  desires  to  put  it 


CHARTER  AMENDMENT  34 


371 


in.  In  fact,  the  amendment  is  in  effect  an  enabling  act  under 
which  the  City  would  be  able  to  open  up  the  whole  franchise 
question  with  the  companies  and  in  accordance  with  certain  gen- 
eral principles  fixed  in  the  amendment,  negotiate  for  a  rational 
resettlement  of  the  big  utility  problems  now  confronting  San 
Francisco. 

As  to  grants  of  new  franchises  that  are  not  resettlements  of 
existing  franchises,  they  are  to  be  regulated  more  in  detail  by 
a  general  ordinance  to  be  adopted  by  the  Board  of  Supervisors 
and  ratified  by  the  people  subsequent  to  the  adoption  of  the 
Charter  amendment  and  its  final  enactment  by  the  Legislature. 


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CHAPTER  17 

GENERAL  FRANCHISE  ORDINANCE 

Analysis  of  Essential  Requirements 

Charter  Amendmeni  No,  34,  as  an  enabling  act,  contemplated  that 
indhidual  franchises  should  conform  to  a  general  franchise  ordinance 
drawn  under  its  provisions.  In  the  following  topical  abstract  are  pre- 
sented and  later  discussed  some  essential  requirements  which,  in  my  judg- 
ment, should  be  incorporated  in  such  ordinances.  These  provisions  were 
all  considered  in  detail,  both  as  to  their  present  and  future  operation,  before 
Amendment  No.  34  was  drafted  into  its  final  form,  but  could  only  receive 
the  briefest  mention  therein.  The  major  subjects  involved  are:  Extensions, 
early  losses,  franchise  term,  decapitalization,  sinking  fund  reserve,  valuation, 
purchase  clause,  profit  sharing,  wage  scales  and  regulative  control. 

RECOMMENDATIONS 

General  Premises.  Ultimate  municipal  ownership,  but  uni- 
fied operation  with  a  uniform  fare  and  universal  transfers.  Grad- 
ual acquisition  and  ultimate  recapture  of  complete  property 
assisted  by  decapitalization.  Underlying  property  considered  as  a 
continuing  investment.  Municipal  control  of  service,  equipment, 
operation  and  audit.  Profit-sharing  plan  with  compulsory  exten- 
sions proportionate  to  earnings. 

Supplemental  Charter  Amendments 

1.  Unified  Public  Service  Commission  with  representation  for 
each  utility  in  a  voting  board,  unrestricted  by  local  political  influence. 
Balance  of  power  to  be  vested  in  Chairman-Arbitrator,  experienced 
in  the  administration  of  utilities.  Engineering  representation  essen- 
tial. Commission  to  exercise  executive  functions  of  the  city  gov- 
ernment in  utility  matters,  subject  in  its  orders  and  decisions  to 
review  only  by  the  State  Railroad  Commission  and  in  turn  by  the 
Courts ;  to  determine  standards  of  service,  construction,  and  account- 
ing, with  supervisions  thereof;  to  determine  the  necessity  and  rea- 
sonableness of  extensions ;  to  certify  to  all  questionable  matters  relat- 
ing to  franchises  requiring  legislative  action  by  the  Supervisors; 
and  to  constitute  a  guardian  of  the  City's  rights  in  the  administration 
and  regulation  of  its  utilities. 

2.  Expansion  of  the  City's  purchasing  power  for  the  progressive 
absorption  of  utilities.    Art.  XII,  Sec.  14,  of  the  present  Charter, 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


establishes  the  City's  policy,  which  needs  to  be  broadened  by  ex- 
empting from  the  present  debt  limit  revenue-producing  utilities  and 
by  permitting  construction  on  the  district  assessment  plan.  Limiting 
the  discount  on  City  utility  bonds  rather  than  fixing  the  minimum 
selling  price  at  par  will  facilitate  prompt  financing. 

New  or  Orifi^inal  Franchises 

1.  Indeterminate  form  of  franchise  with  continuing  option  for 
recapture  by  City  by  assuming  underlying  debts  not  exceeding 
depreciated  value  of  physical  property  at  date  of  purchase;  surren- 
der of  present  determinate  franchises  obligates  the  City  to  regrant 
on  the  indeterminate  plan  under  agreed  conditions  specified  therein. 

2.  City  bonds  to  be  acceptable  to  Company  for  part  or  entire 
payment,  secured  by  the  general  credit  of  the  City  or  by  the  earnings 
on  the  property. 

3.  Adherence  to  the  present  length  of  franchise  term — 25 
years ;  extension  to  a  maximum  total  period  of  40  years  permissible 
in  the  event  franchise  is  not  recalled  by  the  City  purchasing  or  find- 
ing a  purchaser  for  the  property. 

4.  Utility  bonds  covering  underlying  debt  to  be  permitted  to 
mature  between  these  two  periods  under  guaranteed  assumption  of 
underlying  debt  by  the  City  at  any  prior  purchase.! 

5.  Corporation  to  fully  decapitalize  out  of  earnings  during  its 
franchise  term  all  elements  of  intangible  value,  depreciated  or  other- 
wise permanently  extinguished,  and  a  proportion  (increasing  with 
the  length  of  the  term)  of  the  tangible  value. 

6.  Recapture  proceedings  to  include  an  arbitrated  valuation  of 
property,  or  else  an  agreed  value;  the  chief  arbitrator  in  case  6i 
disagreement  to  be  selected  by  the  State  Railroad  Commission,  or 
finally  by  the  Supreme  Court. 

7.  Purchase  price  at  any  time  to  include  "present  value"  of 
property  and  plant  (including  such  intangible  elements  as  interest 
during  construction,  early  losses,  brokerage  or  bond  discount  and  a 
graduated  purchase  bonus)  minus  values  retired  by  sinking  fund 
or  accruals  thereto;  indeterminate  franchises  disregard  franchise 
value,  good  will,  going  value,  etc. 

8.  If  City  exercises  its  option  to  purchase  during  franchise 
term,  Company  to  receive  a  bonus  decreasing  from  a  maximum  of 
20%  above  the  cost  of  producing  the  property  new  as  governed  by 
the  terms  of  the  franchise  by  equal  yearly  steps  to  zero  at  expira- 


I 


Bonded  investment  might  be  limited  to  not  over  71%  of  the  reproduction  value  of 
the  property  new,  balance  to  be  made  up  by  issues  of  preferred  stock,  carrying  a  suffi- 
ciently high  return  rate  to  bring  the  price  near  par;  subsequent  issues  to  cover  possible 
extensions  to  be  financed  on  the  same  basis  or  else  the  difference  between  bonds  and 
total  cost  to  be  made  up  out  of  earnings  from  time  to  time. 


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GENERAL  FRANCHISE  ORDINANCE 


375 


tion,  less  the  amount  accumulated  in  the  amortization  fund  to  date 
of  purchase,  at  which  date  the  City  will  also  receive,  without  cost, 
the  amount  then  accumulated  in  the  renewal  fund,  care  being  taken 
by  the  City  at  the  time  of  granting  the  ordinance  to  see  that  suit- 
able maiatenance  and  renewal  funds  are  established  sufficient  to 
maintain  and  keep  the  property  in  first-class  condition.  The  initial 
bonus  to  be  increased  to  25%  and  similarly  decreased  if  the  prop- 
erty is  re-sold  or  leased  to  private  ov/ners  or  operators. 

9.  Sinking  funds  to  be  in  the  hands  of  a  qualified  trustee  and 
invested  by  him  in  Company  bonds  at  market  price  when  below  par 
(when  above  par,  subject  to  call  at  stated  premiums)  or  in  other 
safe  investments. 

10.  Extensions,  their  necessity  and  reasonableness,  to  be  deter- 
mined and  certified  to  by  the  Commission  when  the  operation  of 
such  extensions  would  fall  within  the  limit  of  a  reasona1)le  return 
on  the  entire  investment. 

IL  Rental  value  of  extensions  built  by  the  City  to  be  deter- 
mined by  the  Commission,  such  extensions  to  be  maintained  by  the 
operator. 

12.  Appraised  value  of  equipment  provided  by  the  Company 
(cars,  overhead  and  underground  transmission)  to  be  assumed  by 
the  City  as  part  of  an  extension  acquired,  provided  that  it  be 
adequate  for  the  service  and  in  good  operating  condition. 

13.  Short  extension  and  connecting  franchises  to  be  granted 
upon  certification  by  the  Commission  without  referendum. 

14.  All  extension  franchises  to  expire  simultaneously  with 
connecting  franchises ;  conditions  and  obligations  of  extension  fran- 
chises to  conform  in  general  with  those  of  connecting  lines,  except 
where  specifically  exempted. 

15.  Validity  of  franchise  grants  to  be  contingent  upon  the 
completion  of  construction  work  contemplated  thereunder  within 
three  years  (or  less  in  some  cases)  and  with  continuous  operation 
thereafter  under  conditions  specified. 

16.  Modification  of  obsolete  conditions  and  unreasonable  ob- 
ligations imposed  in  original  grants,  or  exemptions  from  percentage 
franchise  taxes  or  other  conditions  in  the  case  of  non-paying  exten- 
sions, to  be  permitted  when  necessary  at  the  discretion  of  the  Com- 
mission. 

17.  Income  from  extensions  to  be  assumed  as  that  proportion 
of  the  total  earnings  of  the  route  connecting  therewith  which  the  car 
mileage  over  the  extension  bears  to  the  total  car  mileage  of  such 
connecting  route;  this  mileage  to  be  determined  from  official 
schedules  filed  with  the  Commission.  Operating  expenses  to  be 
averaged  over  the  entire  mileage  of  the  system. 


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SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


18.  Fixed  conditions,  such  as  income  distribution,  except  the 
divisions  to  City,  Company  and  Labor  as  fixed  in  the  ordinance, 
reserves,  type  of  motive  power,  routing,  headway,  and  other  vari- 
ables to  be  readjusted  from  time  to  time  with  the  consent  of  the 
Supervisors  upon  proper  verification  of  the  necessity  therefor  by 
the  Commission. 

19.  Distribution  of  income  to  be  appHed  in  the  following  order : 
(1)  direct  operating  expenses*  and  taxes;  (2)  reserve  for  renewals 
to  cover  permanent  shrinkage  due  to  normal  wear,  depreciation, 
obsolescence,  inadequacy,  etc.;  (3)  reasonable  interest  return  on 
investment  (or  in  the  case  of  resettlement  franchises,  a  basic  return 
on  "agreed  capital  value") ;  (4)  amortization  fund  for  decapitaliz- 
ation  of  intangible  and  tangible  investment;  (5)  contingent  reserve 
fund  for  providing  for  lean  years  and  other  emergencies;!  (6) 
balance  or  residual  net  to  be  shared  by  Company  and  possibly  by 
City,  with  some  provision  for  employees'  bonus,  pension  and  disabil- 
ity fund. 

20.  In  order  to  avoid  delays  and  brokerage,  and  upon  authoriz- 
ation by  the  Commission,  cash  reserve  funds  for  renewals  or  amort- 
ization (but  not  accident  fund)  may  be  used  temporarily  to  meet  un- 
expected, unavoidable  or  extraordinary  demands  for  money  neces- 
sary to  place  the  railway  property  in  operating  condition  as  it  existed 
prior  to  any  accident  caused  by  earthquake,  fire  or  other  acts  of 
God,  and  provided  further  that  the  Commission  shall,  at  the  time 
such  loans  are  made,  see  that  ample  security  is  provided  for  the 
safe  return  to  the  amortization  fund  of  all  the  money  so  borrowed 
from  said  fund,  and  to  the  renewal  fund  the  amount  expended  out 
of  said  fund  in  excess  of  the  actual  accrued  depreciation  (to  the 
date  of  the  accident)  of  the  property  destroyed.  The  difference 
between  the  original  cost  of  the  property  destroyed  and  the  accrued 
depreciation  (to  the  date  of  the  accident)  plus  salvage  shall  be 
taken  from  the  contingent  reserve  fund  (5)  defined  in  the  next 
preceding  paragraph  of  this  chapter,  and  in  case  said  fund  (5)  is 
not  sufficient  to  meet  the  loss,  the  difference  between  said  loss  and 
the  amount  in  said  fund  (5)  shall  be  taken  from  amortization  fund 
(4)  described  in  the  same  paragraph. 

21.  No  franchises  or  property  acquired  thereunder  to  be  sold, 
leased,  or  otherwise  disposed  of  without  the  City's  consent,  and 
recommendation  by  the  Commission. 

•Including   maintenance   and    insurance   but   excluding   taxes   and   depreciation. 

tThis  fund  should  be  accumulated  monthly  by  appropriating  a  comparatively  small  per- 
centage of  the  gross  receipts,  and  when  it  reaches  a  certain  maximum  amount  as  agreed 
in  the  franchise,  all  additions  to  it  thereafter  above  this  amount  can  then  be  used  at  the 
discretion  of  the  Board  of  Control  for  any  or  all  of  the  following  purposes:  (a)  to 
improve  service,  (b)  to  reduce  capitalization,  fc)  to  reduce  fares,  or  (d)  to  be  divided 
between  City  and  Company  upon  an  agreed  basis. 


GENERAL  FRANCHISE  ORDINANCE 


377 


22.  Forfeiture  of  franchise  to  be  the  penalty  for  substantial 
failure  or  refusal  to  comply  with  conditions  therein  not  due  to 
causes  beyond  the  Company's  control;  this  penalty  to  involve  re- 
capture of  both  franchise  and  property  by  the  City  without  cost,  sub- 
ject to  court  decision. 

23.  On  final  expiration  of  franchise,  all  fixed  property  m  the 
streets  to  then  revert  to  the  City  except  additions  made  by  order  of 
the  Commission  during  the  last  five  years  and  except  unamortized 
renewals  and  betterments  during  this  period ;  these  to  be  purchased 
by  the  City  at  an  agreed  or  arbitrated  value. 

24.  City  to  have  power  of  entry  and  supervision  of  audit  of  all 
Company's  property  and  books;  the  Commission  to  conduct  such 
supervision  of  finances,  operation,  service,  and  equipment  as  it 
deems  necessary  for  the  protection  of  both  public  and  investors. 

25.  Profit-sharing  with  the  City  to  be  voluntary  with  Company, 
in  lieu  of  which  a  proportionate  return  to  the  City  is  to  be  secured 
through  franchise  taxes  on  gross  receipts,  the  franchise  to  be 
awarded  to  the  highest  bidder. 

26.  Right-of-way  to  be  maintained  in  such  condition  as  not  to 
damage  abutting  pavement ;  franchise  obligations  in  this  regard  to 
be  construed  in  such  a  manner  that  the  right-of-way  paving  may 
be  in  at  least  as  good  condition  as  the  street  paving ;  in  default  of 
which  the  City  may  order  repairs  at  the  expense  of  the  grantee, 
after  reasonable  notification. 

27.  Company  to  be  relieved  of  special  obligations  constituting 
a  drain  upon  income  not  properly  a  direct  charge  thereto,  such  as 
street  lighting,  free  transportation,  etc. 

28.  Company  to  be  assured  protection  against  avoidable  obstruc- 
tion of  its  rights-of-way  through  adequate  enforcement  of  traffic 
regulating  ordinances. 

29.  Impounding  of  reserve  funds,  established  for  and  accruing 
to  the  benefit  of  the  City  in  the  decapitalization  of  property,  to  be 
provided  against  in  the  event  of  receivership  proceedings. 

30.  Wages  and  conditions  of  labor  to  be  adjusted  from  time 
to  time  through  the  mediation  of  the  Commission  as  arbitrator  or 
automatically  through  the  disbursement  of  the  employees'  benefit 

fund.  .    .  . 

31.  Exemption  clause  to  be  incorporated  permitting  resettle- 
ment of  existing  franchises  under  specific  conditions  subject  to  the 
approval  of  the  Commission  and  the  voters. 

Resettlement  Franchises  —  Supplemental  Recommendations 

1  Resettlement  franchises  to  incorporate  the  following  pro- 
visions:   (1)  minimum  rate  of  extensions— cumulative ;  (2)  rehab- 


I 


378  SAN  FRANCISCO  TRANSPORTATION  FACIUTIES 

ilitation,  maintenance  and  renewals;  (3)  agreed  initial  capital  or 
investment  value;  (4)  methods  of  audit  and  additions  and  better- 
ments; (5)  amortization  of  intangible  and  tangible  values;  (6) 
basic  return  on  agreed  capital  value;  (7)  apportionment  of  divisible 
net  receipts;  (8)  profit-sharing;  (9)  conditions  of  purchase,  sale, 
or  lease  of  property. 

2.  City  streets  to  be  cleared  of  all  unused  franchises  now  void 
from  lapse,  disuse,  non-construction,  or  abandonment. 

3.  Period  of  expiration  and  operating  conditions  of  all  out- 
standing franchises  to  be  equalized  between  trunk  lines  and  exten- 
sions. 

4.  Virtual  (though  not  necessarily  a  contractual)  monopoly  to 
be  recognized  only  under  the  condition  that  the  Company  build  ex- 
tensions determined  upon  or  approved  by  the  City  through  the 
Commission  and  to  render  adequate  service  thereover  up  to  the  limit 
of  a  fair  profit  on  the  investment  in  the  entire  system. 

5.  Municipal  system  to  follow  a  policy  of  co-operative  develop- 
ment rather  than  competition,  with  the  object  of  ultimate  incorpora- 
tion into  a  unified  system  through  purchase  or  lapse  of  existing 
iranchises. 

6.  Public  Service  Commission  or  an  especially  organized  Board 
of  Control,  comprising  adequate  Company  as  well  as  City  represen- 
tation, to  have  complete  and  independent  administration  of  such 
resettlement  ordinances  involving  the  profit-sharing  plan. 

7.  Rehabilitation  of  existing  properties  to  be  carried  out  at  a 
minimum  annual  rate,  assisted  by  such  proportion  of  the  earnings 
as  permitted  by  a  reasonable  net  return  to  the  Company. 

8.  Cost  of  rehabilitation  may  be  carried  for  a  period  and  cap- 
italized, but  with  provision  for  amortizing  out  of  earnings  during 
franchise  term  all  accumulated  intangible  value  due  to  rehabiUta- 
tion. 

9.  Recognized  capital  investment  for  resettlement  purposes  to 
be  the  appraised  depreciated  value  of  operative  property  at  date  of 
appraisal  plus  full  value  of  betterments  and  additions  made  between 
date  of  appraisal  and  date  of  settlement  (if  these  dates  are  within 
one  year  of  each  other,  but  if  more,  depreciation  on  said  betterments 
and  extensions  to  be  deducted;  and  including  such  initial  intangible 
values  as  reasonably  represent  the  then  (date  of  settlement)  present 
value  of  franchise  earning  power,  considering  the  property  operated 
to  expiration  under  reasonable  conditions  of  up-keep,  service  and 
return  on  investment.  The  purchase  price  to  the  City  at  any  time 
to  be  the  value  thus  obtained,  less  reserve  fund  accruals,  plus  the 
percentage  as  described  in  Paragraph  8  of  this  Chapter  under 
"New  or  Original  Franchises." 


GENERAL  FRANCHISE  ORDINANCE 


379 


10.  All  accumulated  reserve  fund  remaining  undistributed  for 
the  purposes  intended,  to  be  applied  to  the  reduction  of  the  purchase 
price  at  termination  of  franchise  or  upon  declaration  of  purchase  by 
City. 

11.  Company  to  decapitalize  out  of  earnings  all  initial  agreed 
intangible  values,  plus  permanent  shrinkage  in  value  due  to  depre- 
ciation, during  the  first  franchise  period  of  20  years ;  thereafter  to 
decapitalize  depreciation  and  all  value  represented  by  fixed  struc- 
tures in  the  streets  and  real  estate  used  in  the  operation  of  the  road, 
provided,  however,  that  the  Company  shall  have  the  right  to  pur- 
chase said  real  estate,  at  the  value  fixed  in  the  appraisal,  upon 
which  the  ordinance  was  based. 

12.  City  to  accumulate  out  of  its  share  a  reserve  fund  for  the 
following  purposes:  (a)  The  purchase  of  the  Company's  bonds 
or  stock  in  the  manner  of  a  trustee  so  as  to  ultimately  acquire  the 
Company's  equity  in  the  property;  or  (b)  The  gradual  acquirement 
of  new  property  additions  by  applying  all  or  part  of  its  share  to  the 
construction  of  needed  extensions,  particularly  during  the  last  ten 
years  of  franchise  life. 

13.  Extensions  to  be  built  by  the  Company  as  directed  or  ap- 
proved by  the  City  (up  to  the  limit  of  a  reasonable  net  return), 
with  a  fixed  minimum  mileage  for  two  or  three-year  periods ;  this 
to  be  cumiulative  at  the  discretion  of  the  Commission. 

14.  Net  residual  income  over  prior  agreed  return  to  the  Com- 
pany on  investment  to  be  divided  between  City  and  Company  on  a 
profit-sharing  plan,  with  possible  provision  for  a  bonus,  pension  and 
benefit  fund  for  Labor. 

15.  Definite  period  for  abandonment  and  delivery  of  property 
by  Company  to  be  provided  in  the  event  of  City  purchase  to  in- 
sure uninterrupted  operation  of  the  system  as  a  whole. 

16.  Labor  difficulties  not  settled  by  the  Commission  to  be  ar- 
bitrated;  but  no  arbitration  to  be  made  within  the  period  of  time 
covered  by  the  last  settlement.    . 

17.  City's  right  to  initiate  extensions  and  compel  connecting 
service  thereon  subject  to  appeal  by  Company  to  State  Railroad 
Commission  or  the  Courts,  except  in  case  of  service  over  extensions 
built  by  City  or  by  assessment. 

18.  Certification  of  proper  cost  of  construction  of  extensions, 
betterments,  and  improvements,  by  the  Commission  necessary  to 
insure  proper  entries  in  capital  account. 

19.  Profit-sharing  plan  contemplates  City  representation  on 
Company  directorate  with  stockholders'  qualifications,  preferably 
through  Chairman  of  the  Commission. 


380 


SAN  FRANCISCO  TRANSPORTATION  FACIUTIES 


GENERAL  FRANCHISE  ORDINANCE 


381 


II ' 


..i< 


1 

1,    u 


20.  In  order  to  avoid  delays  and  brokerage,  and  upon  authoriz- 
ation by  the  Commission,  cash  reserve  funds  for  renewals  or  amort- 
ization (but  not  accident  fund)  may  be  used  temporarily  to  meet  un- 
expected, unavoidable  or  extraordinary  demands  for  money  neces- 
sary to  place  the  railway  property  in  operating  condition  as  it  existed 
prior  to  any  accident  caused  by  earthquake,  fire  or  other  acts  of 
God,  and  provided  further  that  the  Commission  shall,  at  the  time 
such  loans  are  made,  see  that  ample  security  is  provided  for  the 
safe  return  to  the  amortization  fund  of  all  the  money  so  borrowed 
from  said  fund,  and  to  the  renewal  fund  the  amount  expended  out 
of  said  fund  in  excess  of  the  actual  accrued  depreciation  (to  the 
date  of  the  accident)  of  the  property  destroyed.  The  difference 
between  the  original  cost  of  the  property  destroyed  and  the  accrued 
depreciation  (to  the  date  of  the  accident)  plus  salvage  shall  be 
taken  from  the  contingent  reserve  fund  (5)  defined  in  the  next 
preceding  paragraph  of  this  chapter,  and  in  case  said  fund  (5)  is 
not  sufficient  to  meet  the  loss,  the  difference  between  said  loss  and 
the  amount  in  said  fund  (5)  shall  be  taken  from  amortization  fund 
(4)  described  in  the  same  paragraph. 

GENERAL  DISCUSSION  OF  FRANCHISE  PROVISIONS 

Extensions.  The  status  of  a  private  utility  having  a 
practical  monopoly  for  at  least  17  years  is  entirely  different  from 
one  seeking  new  franchises.  Apparently  the  City  has  no  power  to 
compel  extensions.  Therefore,  if  adequate  service  is  maintained  the 
United  Railroads  may  continue  to  operate  to  the  end  of  its  fran- 
chise term  without  making  extensions. 

On  the  other  hand,  any  new  utility  or  extension  to  existent  ones 
must  conform  to  the  present  Charter  provisions  until  amended.  For 
a  new  franchise,  this  is  simply  a  question  whether  the  present  con- 
ditions can  be  met  with  profit.  But  for  an  extension,  the  service 
must  be  so  organized  as  to  permit  of  one  set  of  operating  conditions 
on  trunk  lines  and  another  on  extensions.  This  necessarily  leads 
to  "shuttle"  service  over  the  extension  where  through  service  will 
be  demanded,  and  an  involved  wage  situation.  Therefore,  if  the  ex- 
isting Charter  is  impracticable  for  the  present  system,  it  will  be 
equally  so  for  extensions  thereto,  which  fact  practically  debars  fur- 
ther extensions  in  San  Francisco,  except  to  the  municipal  system. 

Equalization  of  Franchise  Life.  Extension  franchises  run- 
ning longer  than  the  trunk  line  franchise  will  be  of  very  question- 
able value  after  the  latter's  termination.  At  best,  extensions  are 
usually  non-paying  for  some  years.  The  retirement  of  investment 
is  therefore  even  more  difficult  than  on  a  trunk  line,  especially  in 
such  a  short  period  as  17  years.    To  adequately  protect  such  invest- 


ment, it  is  necessary  that  the  bonds  issued  therefor  may  have  a  term 
enough  longer  to  permit  of  a  reasonable  sinking  fund  rate,  and  that 
the  City  assume  the  unamortized  debt  at  the  expiration  of  the  fran- 
chise, receiving  equivalent  property  value.  The  attempt  to  impose 
impractical  conditions  on  a  short-term  extension  franchise  will  pro- 
hibit private  investment,  and  therefore  either  the  municipality  or 
the  citizens  benefited  must  supply  the  capital.  Equalization  of  the 
franchise  life  upon  a  just  basis  between  long  and  short  term  fran- 
chises therefore  becomes  necessary  and  desirable  so  that  on  ex- 
piration, the  entire  system  reverts  to  the  municipality  at  a  given 
time,  when  the  City  is  then  free  to  extend  its  own  system. 

Early  Losses.  Extensions  must  precede  rather  than  fol- 
low development  of  traffic,  so  that  early  losses  may  be  expected. 
Even  if  a  practical  method  could  be  found  for  accurately  accounting 
for  earnings  and  operating  expenses  of  extensions,  which  is  not 
known  to  me,  it  would  obviously  be  impossible  to  retire  the  true 
investment  out  oi  such  limited  earnings  if  it  is  difficult  to  do  so 
during  the  limited  franchise  term  desired  on  lines  of  heavier  traffic. 
Extensions  must  be  carried  by  the  trunk  lines,  and  the  City  logically 
can  only  require  extensions  up  to  a  point  where  dilution  of  earnings 
of  the  main  system  thereby  reduces  the  net  income  to  the  minimum 
necessary  to  support  the  entire  true  investment.  Should  the  City 
itself  eventually  participate  in  the  net  earnings  under  a  resettlement 
franchise  plan,  this  would  automatically  operate  as  a  curb  to  un- 
reasonable demands  of  its  citizens  for  extensions. 

Limited  Franchise  Term.  Although  a  franchise  term 

limited  to  20  or  25  years  is  desirable  from  some  points  of  v?ew, 
it  must  be  recognized  that  there  are  definite  limitations  to  the  Com- 
pany's ability  to  retire  its  invested  capital  within  such  short  periods. 
The  necessary  investment  will  be  at  least  $3,  and  possibly  over  $4, 
per  dollar  of  annual  income.  Therefore,  with  the  fare  fixed  and 
a  minimum  operating  ratio,  the  per  cent  of  income  that  may  be  di- 
verted to  sinking  fund  is  limited.  To  retire  $100  in  25  years  re- 
quires an  annuity  of  $2.74,  when  earning  3%,  and  $2.10  when  earn- 
ing 5%,  compounded.  Therefore  a  reserve  representing  from  6 
fo  1 1  %  of  the  income  would  be  necessary  to  retire  the  capital  alone, 
neglecting  entirely  the  reserve  of  6  or  8%  necessary  for  deprecia- 
tion and  10  or  12%  for  maintenance.  For  complete  retirement  in  16 
years  (that  is,  by  1929)  from  13  to  20%  of  the  income  would  have 
to  be  reserved.  These  figures  represent  the  practical  limitations 
that  prevent  the  investment  of  capital  in  short  term  franchises  un- 
less some  provision  be  made  as  elsewhere  discussed  herein  for  the 
City  to  assume  at  the  termination  of  the  franchise  the  underlying 
funded  debt  representing  actual  property  in  the  streets,  or  in  lieu 
thereof  to  automatically  extend  the  franchise  term  for  a  sufficient 


\  t 


382 


SAN  FRANCISCO  TRANSPORTATION  FACILITICS 


GENERAL  FRANCHISE  ORDINANCE 


383 


1 1   f' 


ft 


period  to  permit  of  the  property  paying  for  itself  with  a  reasonable 
sinking  fund.  It  would  then  be  possible,  within  a  comparatively 
short  franchise  term,  for  a  railway  company  to  decapitalize  all  that 
portion  of  its  investment  representing  intangible  value  or  property 
extinguished  through  depreciation  or  inadequacy. 

Decapitalization.  The  City  Charter  permits  municipal  bond 
issues  running  for  75  years  with  sinking  fund  payments  deferred 
for  18  years,  thus  leaving  57  years  for  actual  decapitalization. 
And  even  with  a  revenue  producing  investment  such  as  water 
works,  it  is  the  practice  to  decapitalize  by  long-term  bonds. 

A  street  railway  should  be  regarded  as  a  continuing  investment, 
as  distinct  from  a  property  operated  to  extinction  such  as  an  invest- 
ment based  on  coal  mining  rights.  And  any  plan  of  operating  to 
extinction  a  permanent  utility,  revenue-producing,  as  with  a 
short-term  franchise,  is  preposterous  from  an  economic  stand- 
point, especially  under  the  limitations  of  a  5-cent  fare.  For  it  is 
evident  that  any  utility,  similar  to  the  United  Railroads  property, 
once  established  must  continue  operation  irrespective  of  oumership. 

This  fact  has  been  recognized  in  Charter  Amendment  34, 
wherein  it  becomes  the  first  duty  of  a  private  utility  to  decap- 
italize out  of  earnings  within  20  years  such  original  intangible 
values  as  bond  discounts,  interest  during  construction,  early 
losses,  promoters'  profits,  and  all  permanent  shrinkage  in  values 
due  to  wear  and  obsolescence,  leaving  a  residual  "present  value" 
representing  probably  75%  of  the  reproduction  value  new.  After 
the  cycle  of  life  of  the  longest  lived  part  of  the  property  has  been 
reached,  this  condition  may  then  be  maintained  permanently  by 
proper  expenditures  for  repairs,  renewals,  and  extensions,  and  will 
suffice  for  a  high  grade  operative  growing  property. 

Sinking  Fund  Reserve.  Inasmuch  as  the  primary  object 
of  a  sinking  fund  is  to  retire  invested  capital,  it  is  only  logical  that 
this  reserve  be  used  to  buy  up  the  securities  issued  therefor,  espe- 
cially if  their  market  price  is  below  par,  for  by  this  means  a  high 
interest  rate  with  the  best  security  is  obtained.  Thus  the  fund  will 
accumulate  faster  than  if  limitations  are  placed  by  the  City  upon 
the  sinking  fund  investment  which  results  in  a  return  of  only  2^% 
or  3%  (such  as  on  bank  balances)  whereas  double  this  rate  is  justi- 
fiable and  satisfactory  to  investors,  the  only  result  will  be  to 
lengthen  the  period  of  possible  retirement  of  the  property  if  the 
lower,  rate  is  adhered  to. 

Furthermore,  if  these  sinking  fund  investments  are  com- 
puted upon  a  monthly  or  even  quarterly  basis,  the  resulting 
annuity  may  be  materially  decreased,  or  conversely,  the  period 
of  retirement  shortened. 


But  a  reserve  for  renewals  and  depreciation  bears  an  entirely 
different  relation  to  the  property  than  one  for  retirement  of 
funded  debt,  and  renewal  funds  must  always  be  available  in 
cash  or  readily  negotiable  securities  for  carrying  on  reconstruction 
work;  for  upon  the  integrity  of  such  a  fund  at  the  proper  time 
depends  that  of  the  financial  and  operating  plan  by  which  per- 
manent shrinkage  in  property  value  due  to  depreciation  may  be 
made  up  out  of  earnings  from  time  to  time  as  required.  The 
mere  writing  off  of  book  depreciation  does  not  suffice  unless  the 
equivalent  ready  money  is  available. 

Valuation  Any  resettlement  plan  should  incorporate  a 

definite  purchase  price  for  the  property,  including  all  eights  and 
equities  therein  to  which  may  be  added  betterments,  additions 
and  extensions  of  the  future.  It  is  not  clear  to  me  that  a 
detailed  appraisal  is  immediately  necessary  at  the  present  time, 
and  in  view  of  the  complex  franchise  status,  I  am  inclmed  to 
believe  it  unnecessary.  But  if  a  resettlement  is  to  be  reached, 
the  Company  and  the  City  must  agree  upon  some  figure,  pre- 
sumablv  a  compromise  between  the  present  estiimted  cost  to  repro- 
duce new  and  the  present  total  capital  liability.  There  are  two  meth- 
ods of  securing  the  results  desired : 

First  a  price  agreed  upon  now  based  upon  an  appraised 
valuation  in  its  present  condition,  to  which  future  betterments  and 
additions  may  be  added  to  obtain  the  purchase  price  at  any 
future  time.  This  is  the  "Chicago  Plan,"  and  m  most  respects 
is  the  more  satisfactory  from  the  City's  viewpoint,  as  it  always 
provides  a  definite  purchase  price  by  eliminating  questionable  intan- 
gible values  arising  in  the  future. 

Second,  appraisal  may  be  made  only  at  such  time  as  the  City 
is  prepared  to  take  over  the  property.  Although  this  deferring 
of  the  appraisal  might  eliminate  much  extinguished  value  m  the 
case  of  a  run-down  property,  yet  it  is  also  true  that  apprectatwn  in 
the  value  of  operating  property  and  real  estate  might  actually 
result  in  a  higher  future  "present  value,"  due  to  a  general  rise 
in  real  estate  and  commodity  prices.  With  a  property  normally 
maintained,  it  would  be  certain  to  so  result. 

In  an  extensive  rehabilitation  there  will  accrue  considerable 
non-physical  or  intangible  value  resulting  from  the  extmguish- 
ment  of  obsolete  property  ;  and  any  purchase  price  will  necessarily 
contain  a  certain  proportion  of  such  value.  Non-physical  value 
cannot  be  avoided  in  the  organization  and  construction  of  any 
property,  whether  private  or  municipal,  and  it  is  idle  to  consider 
appraisals  based  entirely  upon  the  bare  contract  price  of  labor 
and  material. 


384 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


For  the  purposes  of  a  practical  resettlement,  however,  this 
intangible  value  is  not  of  such  serious  consequence,  as  it  will  be 
decapitalized  within  the  minimum  period  of  franchise  grant,  or 
before,  if  possible.  This  stipulation  will  secure  to  the  City  when 
ready  to  purchase,  a  permanent  investment  free  of  intangibles  of 
this  nature  as  well  as  those  due  to  depreciation,  which  latter  usually 
represent  about  25%  of  the  "cost  new  value"  of  the  property.  In 
other  words  under  the  plan  proposed  in  Amendment  34,  the  City  will 
be  able  to  buy  a  high-grade  operating  property  for  75  cents  on  the 
dollar,  whereas  it  would  cost  the  City  much  more  than  100  cents  on 
the  dollar  for  the  same  property  acquired  by  condemnation,  even 
after  waiting  ly  years  until  the  expiration  of  the  present  franchises. 

Whatever  the  true  physical  value  of  the  property  may  now 
be,  present  conditions  require  the  Company  to  meet  bond  inter- 
est at  the  average  rate  of  4.5%  on  $40,000,000  (or  5.5%  including 
sinking  fund),  in  default  of  which  a  receivership  and  reorganization 
would  probably  become  necessary.  If  this  debt  were  refinanced  on  a 
5%  basis,  an  investment  of  $33,000,000  would  represent  the  mini- 
mum  value  which  the  present  operators  could  possibly  consider.  If  a 
detailed  appraisal  were  made  now,  as  in  the  case  of  Chicago 
under  the  1907  resettlement,  a  lower  value  would  probably  be 
found  for  the  physical  property  now  in  evidence.  However,  the 
unquestioned  value  of  the  unexpired  franchises  would  be  in- 
volved as,  in  the  "Chicago  Plan"  which  would  in  effect  render  the 
value  of  the  present  physical  property  only  one  factor  in  an  agreed 
valuation. 

The  Chicago  valuation,  by  Court  order,  even  recognized  the 
value  under  an  existing  franchise,  of  a  defunct  cable  property 
which  was  immediately  scrapped  and  electrified;  and  further- 
more, franchise  value  was  allowed  one  company  covering  18 
months'  earnings  beyond  the  determination  of  its  franchise,  in 
recognition  of  the  right  to  operate  until  such  time  as  the  City  could 
operate  the  property. 

Purchase  Clause,  In  order  to  render  a  purchase  clause 
effective,  it  is  absolutely  necessary  that  some  program  of  de- 
capitalization  be  put  into  effect  so  that  the  purchasing  power  of 
the  City  may  more  nearly  keep  pace  with  the  necessary  invest- 
ment without  diluting  its  credit  through  excessive  municipal 
debt.  At  present  the  City's  ability  to  purchase  is  not  only  in- 
adequate, but  is  falling  further  and  further  behind,  as  discussed 
in  Chapters  2  and  16.  Under  an  indeterminate  franchise,  private 
capital  must  have  assurance  of  purchase  by  the  City  at  fair 
value  at  the  end  of  its  franchise  term  or  before,  if  the  City  elects ; 
or  in  lieu  thereof,  that  it  will  be  permitted  to  operate  during  a 
reasonably  extended  term  until  the  City  can  purchase.    With  a 


GENERAL  FRANCHISE  ORDINANCE 


385 


n 


fixed  income  (5-cent  fare)  and  the  additional  burdens  imposed 
herein  the  integrity  of  the  investment  cannot  be  otherwise  main- 
tained, nor  additional  capital  found  to  finance  necessary  exten- 
sions. .  , 

On  the  other  hand,  if  the  City  guarantees  the  assumption  of  the 
underlying  debt  representing  real  physical  property  free  from  intan- 
gible values  at  the  franchise  expiration,  a  long-term  sinking  fund 
could  be  employed  that  would  not  be  an  impossible  drain  on  income, 
that  would  insure  the  integrity  of  the  investment,  and  would  enable 
the  City  to  utilize  private  capital  most  effectively  as  a  temporary 
means  to  its  avowed  ultimate  end— municipal  ownership. 

Profit  Sharing.  Strictly  speaking,  the  principle  of  profit- 
sharing  between  City  and  Company  involves  the  maintenance  of 
a  regulated  monopoly,  in  which  the  City  participates  as  a  silent 
partner  and  is  relieved  of  the  direct  responsibilities  of  operation^ 
This  is  the  case  in  Chicago.  But  in  San  Francisco  it  is  proposed 
to  tax  the  earnings  of  a  private  company  for  the  construction 
and  extension  of  a  municipal  utility  to  be  operated  in  direct 
competition  therewith.  This  becomes  particularly  onerous  as 
the  City  can  grant  itself  rights  and  commute  its  financial  burdens 
while  denying  such  special  favors  to  any  private  utility. 

It  is  true  that  the  present  municipal  system  is  not  now  a 
serious  competitor,  but  under  the  City's  declared  PoHcy  it  niay 
become  so;  and  although  this  sharing  of  residual   profits  has 
many  advantages,  unless  the  municipal  system  be  expanded  a  ong 
lines  of  development  rather  than  competition,  established  utilities 
cannot  be  expected  to  co-operate  voluntarily  in  any  such  plan 
It  is  therefore  but  just  that  the  City's  share  in   residual   net 
income  be  applied  partly  or  entirely  to  the  building  of  extensions 
to  the  present  system    wherever   they    may    be    most    needed,     or 
to  the  decapitalization  of  tangible  property  to  be  included  in  the 
ultimate  purchase  price;  or  else  to  the  construction  of  supple- 
mental rapid  transit  lines.    While  this  income  might  be  applied 
to  increased  service  or  the  reduction  of  the  fare  for  the  benefit 
of  all   citizens,   adequate   service   may   better   be   provided   for 
through  exercise  of  the  City's  powers  of  regulation   and  in  any 
case  it  seems  that  the  public  now  desires  and  demands  a  five-cent 
standard  of  service  rather  than  a  "three-cent  service.     The  small 
margin  of  profit  which  undoubtedly  exists  in  the  street  railway  busi- 
ness  today  and  the  rapidly  increasing  investment  due  to  rapid  civic 
expansion  demands,  in  my  judgment,  a  higher  standard  of  opera- 
tion rather  than  a  reduced  fare,  especially  on  the  Pacific  Coast. 
In  the  case  of  other  utilities  having  flexible  rates,  private 
operators  may  be  encouraged  by  a  sliding  scale  of  profits  under 


386 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


!#li 


■  r 


which  exceptional  skill  in  management  may  be  rewarded  by  an 
increase  in  return  on  the  investment,  provided  that  the  quality 
of  service  is  increased  at  the  same  time  or  the  rates  reduced. 
Such  a  plan  has  resulted  in  Boston  in  the  reduction  of  the  price 
of  gas  from  90  to  80  cents  per  thousand,  and  with  an  increase 
in  dividends  from  6  to  8% — and  this  within  one  year.  But  with 
a  fixed  5-cent  car-fare,  this  principle  can  be  applied  only  through 
increased  service  standards.  And  as  this  is  properly  the  function 
of  utility  regulation  now  within  the  City's  powers,  a  simple 
profit-sharing  plan  modelled  after  the  Chicago  plan,  with  its 
acknowledged  imperfections  removed,  seems  best  for  San  Fran- 
cisco. 

Several  plans  operative  under  the  conditions  of  Charter 
Amendment  34  have  been  worked  out  to  finality  in  Chapter  4; 
and  incorporated  therein  will  be  found  provisions  for  admitting 
Labor  into  the  profit-sharing  plan.  This  recognizes  the  fact  that  the 
present  unrest  and  enormous  economic  losses  from  strikes  may 
be  mitigated  or  entirely  removed  by  establishing  a  bonus  for 
Labor  in  the  form  of  a  benefit  fund  for  sickness,  accident,  death, 
old  age  or  other  disabilities ;  and  also  for  a  bonus  to  be  dis- 
tributed among  the  employees  for  faithful  and  meritorious 
service,  as  determined  by  a  merit  system  of  discipline.  Such  a 
plan  is  now  in  operation  in  Philadelphia,  by  which  Labor  is  prac- 
tically guaranteed  a  minimum  wage  during  lean  years,  and  par- 
ticipates in  the  profits  of  good  years  in  addition  to  an  insurance 
fund  against  disability.  This  plan  has  been  improved  upon 
herein  by  including  not  only  trainmen,  but  all  employees  re- 
ceiving a  wage  of  $1500  per  annum  or  under.     (See  Table  44.) 

Wage  Scale,  With  a  flexible  fare,  it  would  of  course  be  pos- 
sible to  pay  any  rate  of  wages  within  reason,  but  with  a  fixed  fare, 
the  limitations  of  the  income  and  necessary  expenditures  place  an 
absolute  limitation  upon  wages  as  well  as  upon  all  other  expenditures 
necessary  to  produce  a  unit  of  service.  With  one  exception,  car 
men's  wages  in  San  Francisco  are  now  higher  than  in  other  large 
cities,  and  in  this  one  exception,  no  minimum  wage  or  maximum 
overtime  limit  of  service  is  imposed.  The  present  U.  R.  R.  time 
schedule  is  organized  on  practically  a  10-hour  working  day,t  with 
only  an  inconsiderable  number  of  trainmen  receiving  pay  for  less 
than  9  hours  work.  This  schedule  results  from  the  fact  that  a  large 
portion  of  the  railway  business  is  done  during  the  rush  hours,  morn- 
ing and  evening,  each  not  more  than  two  hours  long,  with  a  full 
eight  hours  intervening,  as  may  be  observed  from  the  load  diagram. 
Fig.    23.     Good    service    during    rush    hours    usually    requires 

tSee  Graphical  Representation,  Fig,  91,  page  330. 


GENERAL  FRANCHISE  ORDINANCE  ^^^ 

in  operated  seating  capacity  about  100%  increase  over  day 
schedule,  which  necessarily  requires  short  runs  as  '^extras,"  "trip- 
pers," or  "swing  runs" ;  and  the  better  the  service,  the  shorter  unit 
be  the  average  extra  run.  It  is  therefore  necessary  to  split  and  lap 
runs  to  secure  a  reasonably  satisfactory  day's  work  for  carmen ;  that 
is  to  sub-divide  the  platform  time  so  as  to  fit  into  the  actual  riding 
habit  of  the  people.  Otherwise,  it  would  be  necessary  to  pay  a  full 
day's  wage  for  two  to  four  hours  of  service. 

The  present  Charter  fixes  the  condition  of  municipal  employ- 
ment, irrespective  of  the  conditions  of  service,  at  a  minimum  wage 
of  $3.00  for  an  eight-hour  working  day  and  overtime  at  an  advanced 
rate  of  50%.     But  for  private  companies,  the  additional  burden  is 
imposed  by  limiting  the  maximum  day's  work  to  10  hours  total 
elapsed  time.     Under  the  above-named  conditions  of  riding  habit, 
this  wage  scale  becomes  unquestionably  prohibitive,  and  has  been 
so  recognized  in  Amendment  No.  34  on  the  ground  that  the  rtdmg 
habit  of  the  people  cannot  be  reorganised  by  any  kind  of  legislation. 
Assuming  the  present  time  schedule,  the  eight-hour  provisions 
would  introduce  a  flat  increase  of  25%  in  the  number  of  carmen 
necessary  to  produce  present  service,  to  say  nothing  of  improve- 
ments therein  contemplated  in  this  report.     An  increase  in  average 
wage  to  37.5  cents  per  hour  ($3.00  per  day)  would  result  in  about 
40%  greater  platform  expense  based  upon  the  income  of  1911,  and 
with  V/2  overtime  rate,  a  50%  increase  in  platform  expense  would 
result.     Finally,  with  the  10-hour  maximum  time  limit  imposed  by 
the  Charter,  a  still  greater  proportion  of  short-time  men  would  be 
necessary,  resulting  in  a  further  increase  in  platform  expense,  the 
exact  amount  of  which  could  only  be  determined  by  working  out  a 
complete  schedule  covering  750  to  1,000  runs  per  day.     A  flat  in- 
crease of  at  least  50%  over  the  present  wage  scale  could  be  safely 
assumed ;  even  this  would  prevent  the  Company  from  earning  a  rea- 
sonable return  upon  its  bonded  debt  or  from  delivering  adequate 
service  under  a  5-cent  fare,  even  if  the  value  of  the  physical  prop- 
erty only  were  considered. 

Distribution  of  Return.  The  present  situation  may  best  be 
appreciated  from  the  aiagram  of  income  distribution,  Fig.  21,  and 
the  accompanying  graph,  Fig.  99,  showing  the  possibilities  of  vary- 
ing the  returji  to  Company,  Labor,  and  City,  respectively.  During 
the  calendar  year  1911  income  was  distributed  thus: 

Company  received  in  fixed  charges 35% 

Labor  received  in  wages 30% 

L-ity  and  State  received  in  taxes 5% 

Public   received    in    service    (operation) 30% 

Total 100% 


388 


SAN  FRANCISCO  TRANSPORTATION  FACIUTIES 


"  I  % 


a 


70  7b  OF  GROSS  INCOME 


Ml 


PERMISSIBLE ± 
RANGE  OF  «s 
AOJUSTMEWTT 


60  OPERATING  LABOR 


.        ^  ... ...  -.v^^z-^'-Si'^-; 


!  . 


1^1!' 


FIGURE  99— PROPORTIONAL  RETURN  TO   CITY.   COMPANY.  AND  LABOR. 

Recognizing  three  principal  participants  in  railway  operation,  this  diagram 
shows  possible  division  of  earnings,  based  upon  the  present  ratio  of  return  to 
City  (Public)  and  to  Labor.  Each  of  the  three  scales  represents  one  of  the 
shares.  If  the  height  (or  ordinate)  of  any  horizontal  plane  marks  the 
Company's  share  of  income,  then  the  distance  to  the  right  and  to  the  left 
(as  indicated  by  the  dotted  lines)  marks  the  shares  of  Labor  and  City, 
respectively.  Any  increase  in  the  shares  of  City  and  Labor  necessarily  de- 
creases the  Company's  share  proportionately,  and  vice  versa.  Thus  the  top 
plane  shown  represents  present  (1911)  conditions — i.  e.,  City  5%,  Labor 
30%,  Capital  35%  (of  which  4.67%  is  used  for  amortization  of  part  of  the 
Company's  bonded  debt) — while  the  lower  plane  represents  that  point  where 
further  reduction  in  Company's  share  would  result  in  a  receivership — i.  e., 
Company  27j/^%,  City  6%,  and  Labor  36^^%.  Therefore,  in  any  resettle- 
ment plan,  the  range  of  possible  adjustment  in  Company's  share,  irrespective 
of  the  division  between  City  and  Labor,  is  shown  by  the  interval  between 
the  two  planes — ^75^%. 


GENERAL  FRANCHISE  ORDINANCE 


389 


Deducting  5%  from  the  Company's  share  for  sinking  fund,  equal 
parts  of  the  income  were  shared  by  Labor,  Company  and  Public ;  or 
including  taxes,  the  Public  received  the  largest  share  in  actual  re- 
turn from  operation  of  the  property. 

From  this  income  distribution  graph,  Fig.  99,  the  effect  of 
reducing  the  Company's  return  by  increasing  proportionately  those 
of  Labor  and  Public  will  be  clear,  together  with  the  permissible 
range  of  increase  before  the  Company  is  thrown  into  a  receivership. 
This  range  is  comparatively  small,  7>^%,  which  corresponds  to  a  re- 
duction of  only  about  2%  in  return  upon  actual  investment.  This 
graph  simply  illustrates  the  fixed  elements  of  a  profit-sharing  plan, 
which  to  be  effective  must  be  based  upon  a  fair  distribution. 

Viewpoints  of  Private  Operators.  From  my  studies  on 
this  subject  in  San  Francisco  and  other  cities,  I  believe  the  follow- 
ing conditions  should  be  acceptable  by  enlightened  railway  execu- 
tives in  a  resettlement  plan  such  as  proposed  herein : 

1.  Decapitalization  of  intangible  values  (including  the  depre- 
ciated value  represented  by  the  difference  between  the  cost  of  the 
property  new  and  the  best  condition  in  which  it  can  be  maintained) 
out  of  earnings  during  a  25-year  franchise  term,  and  within  40 
years,  at  least  so  much  of  the  property  as  is  represented  by  fixed 
structures  in  the  public  streets  as  well  as  the  depreciated  value  above 
noted ;  City,  if  it  purchases,  to  assume  the  underlying  funded  debt 
(not  exceeding  the  value  of  the  physical  property).  Corporation  to 
accept  City  bonds  in  part  or  total  payment  therefor. 

2.  Equalization  of  franchise  term  for  both  extensions  and  trunk 
lines ;  future  extensions  to  be  initiated  by  the  Company  or  City  as 
required  by  district  development  so  far  as  permitted  by  the  net  earn- 
ings necessary  for  recovering  the  investment  during  the  franchise 
term ;  Company  to  continue  operation  under  an  indeterminate  fran- 
chise until  bonds  mature  if  City  does  not  elect  to  purchase  the  prop- 
erty before. 

3.  Ordinary  minor  franchises  for  extensions  to  be  passed  upon 
by  the  Public  Utilities  Commission  in  order  to  save  expense  and  de- 
lays ;  trunk  line  franchises  only  to  be  submitted  to  referendum ;  pos- 
sible dividing  line  to  be  drawn  whereby  all  franchises  involving 
construction  expenditures  in  excess  of  $75,000  or  $100,000  should  be 
voted  upon. 

4.  Higher  money  rates  and  consequent  return  on  investment 
become  necessary  if  the  City  follows  a  policy  of  destructive  com- 
petition; a  regulated  monopoly  is  preferable,  whether  or  not  ulti- 
mate municipal  ownership  is  contemplated. 

5.  Profit-sharing  plan  acceptable,  except  one  involving  prop- 
erty interests  of  employees  which  would  give  legal  title  to  interest 


i 


; 


390 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


in  property  without  corresponding  financial  responsibility ;  discipline 
is  imperative,  and  an  employees'  bonus  fund,  based  upon  the  merit 
system,  (including  an  insurance  fund  for  disabilities  and  contingen- 
cies) would  be  more  satisfactory. 

6.  The  ideal  municipal  ownership  plan  favored;  City  to  own 
the  property  and  lease  to  the  highest  bidder,  who  operates,  main- 
tains, and  renews  it  out  of  earnings ;  unearned  increments  in  physical 
value  thus  accrue  to  the  City  in  the  form  of  higher  rental  values. 

7.  In  case  no  Commission  is  created,  the  City  may  very  properly 
have  direct  representation  in  the  directorate  of  the  operating  com- 
panies, to  the  extent  of  one-third  of  the  voting  power,  in  order  to 
protect  its  share  in  the  residual  income  of  the  property  under  a 
profit-sharing  plan. 

Regulative  Control.  Regulation  should  exist  as  a  means  of  in- 
terpreting corporate  questions  for  the  benefit  of  the  people  in  order 
to  permit  corporations  to  escape  the  burden  of  political  activity,  and 
in  order  to  secure  operating  conditions  during  their  franchise  terms 
that  will  insure  protection  to  invested  capital  with  a  fair  profit.  There- 
fore, public  service  commissions  which  exist  subject  to  the  whim  of 
the  appointive  political  power  (without  due  process  of  impeachment), 
or  whose  decisions  and  orders  may  be  interfered  with  or  counter- 
manded by  municipal  political  bodies,  even  though  superior  in  the 
municipal  organizations,  are  not  likely  to  do  effective  work,  render 
just  and  equitable  decisions,  or  conduct  themselves  as  an  efficient 
mediary  between  Corporation  and  Public. 

It  is  assumed  that  at  the  present  time  it  is  not  the  expectation  of 
the  City  to  relinquish  its  regulative  powers  to  the  State,  and  that 
therefore  the  status  of  the  First  and  Second  District  Commissions 
of  New  York,  both  being  State-appointed  bodies,  will  not  be  repro- 
duced here  but  that  a  modification  of  this  plan  will  be  adopted,  based 
upon  experience  with  the  practical  operation  of  the  Chicago  Trac- 
tion resettlement,  whereby  a  Municipal  Commission  will  be  created 
whose  decisions  will  be  subject  to  review  by  the  State  Railroad 
Commission.  While  this  plan  would  not  seem  wise  in  cities  of  very 
limited  powers  of  control  over  their  utilities,  it  is  probably  justifiable 
in  San  Francisco  with  its  very  broad  regulative  powers.  As  to  the 
organization  of  this  Commission,  the  following  points  appear  essen- 
tial : 

1.  While  the  legislative  functions  of  franchise  granting  should 
continue  to  be  vested  in  the  Board  of  Supervisors,  representing  the 
electorate,  the  actual  determination  of  questions  relative  to  rates, 
service,  extensions,  equipment,  accounting,  etc.,  should  be  vested  in 
the  Commission  as  already  contemplated,  but  with  the  additional 
provision  that  the  Commission  should  be  clothed  with  authority  to 


GENERAL  FRANCHISE  ORDINANCE 


391 


U 


enforce  its  decisions  subject  to  review  by  the  State  Railroad  Com- 
mission or  the  Courts. 

2.  The  actual  management  of  municipal  utilities  and  the 
supervision  of  private  ones  should  be  vested  entirely  in  the 
Commission,  with  administration  by  men  having  sufficient 
technical  experience  to  insure  results  based  upon  scientiHc  methods. 

3.  A  unified  Public  Service  Commission  covering  all  utilities 
is  in  my  judgment  essential,  with  a  departmental  plan  of  or- 
ganization; the  Chairman  to  perform  the  function  of  arbitrator, 
and  to  be  relieved  from  changing  political  sentiment  through  a 
reasonable  tenure  of  office. 

4.  In  the  particular  case  of  a  body  entrusted  with  the  admin- 
istration of  a  resettlement  franchise  involving  the  sharing  of 
profits  between  City  and  utility  company  such  as  the  Board  of 
Supervising  Engineers,  Chicago  Traction,  the  success  of  the  plan 
evidently  depends  upon  efficient  representation  of  the  utilities; 
but  the  aggregate  voting  power  of  the  Commissioners  assigned 
to  all  participating  utilities  should  not  be  greater  than  that  of  the 
City  representative,  with  the  balance  of  power  always  vested  in 
the  administrative  head. 

5.  Owing  to  the  essentially  technical  nature  of  the  business 
of  utility  regulation  and  administration,  there  should  be  ade- 
quate engineering  representation  in  the  Commission ;  for  it  is 
impossible  for  the  layman  to  pass  intelligently  upon  such  ques- 
tions as  operative  and  construction  standards,  depreciation,  etc. 
The  Chairman  particularly  should  be  a  man  whose  experience 
has  been  such  as  to  insure  a  general  knowledge  of  the  adminis- 
tration of  utilities. 

6.  In  the  selection  of  Chairman-Arbitrator,  it  is  important 
that  this  should  be  done  by  joint  action  of  municipality  and  par- 
ticipating corporations,  and  if  agreement  is  impossible,  a  selection 
by  some  member  of  the  State  judiciary  could  be  made  in  the 
manner  of  a  Special  Master  in  receivership  proceedings. 

The  above  Commission  would  constitute  a  co-operative  or- 
ganization for  the  practical  administration  of  public  utility  business. 
and  not  a  Court  of  Justice,  which  latter  function,  I  believe,  is 
outside  of  the  scope  of  such  a  body  as  is  needed  in  San  Francisco 
to  work  out  its  problems.  While  all  company  representatives 
would  sit  in  matters  of  broad  policy,  each  with  a  fractional  vote, 
the  City's  interests  are  amply  protected  by  the  above  apportion- 
ment of  representation,  the  object  of  which  has  been  to  create  an 
equilibrium  of  power  so  that  neither  City  nor  Companies  could  exer- 
cise undue  influence  in  enforcing  demands  against  the  judgment 
of  the  Commission  as  a  whole. 


m 


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I,- 


CHAPTER  18 

PRESENT  FRANCHISE  STATUS 

Deductions    from    Existing    Records 
Legal    Questions    Involved 
Franchise   Map    Records 

In  order  to  reach  reasonable  conclusions  regarding  the  present  status 
and  future  earning  power  of  the  railway;  franchises  existent,  a  study  had  to 
he  made  of  those  notv  on  record  in  the  municipal  franchise  hook  prepared 
tp  the  Board  of  Supervisors,  considering  the  history?  of  each  individual 
franchise  from  the  date  of  its  grant  to  the  present  time.  From  this  stud}?, 
which  has  been  contributed  to  this  investigation  fcp  the  Board,  it  appears  to 
be  hopeless  to  attempt  anp  statement  upon  which  franchise  values  could  be 
positivel}f  determined  without  adjudication  of  certain  legal  questions  in- 
volved, as  herein  stated.  It  therefore  remains  to  accept  a  difficult  situation 
and  evolve  a  new  plan  of  action  wherehyj  the  uncertainties  of  the  past 
and  present  may  be  replaced  by  a  practicable  working  plan  for  the  future 
which  will  secure  the  one  essential  result — adequate  service. 


General  Statement.  The  United  Railroads  has  acquired 
through  purchase  or  control  of  securities  the  entire  traction 
properties  of  San  Francisco,  together  with  franchise  rights, 
except  the  California  Street  cable,  the  Presidio  &  Ferries  electric, 
and  the  Geary  Street  cable  (now  the  Municipal  electric  line).  Some 
franchises  have  already  expired,  such  as  the  Richmond  section 
of  the  California  Street  line.  The  entire  Presidio  line  reverts  to 
the  City  in  1913,  including  roadbed,  giving  it  a  most  important 
feeder  to  Harbor  View  and  the  Exposition  and  the  key  to  the 
only  important  diagonal  thoroughfare  of  the  city  other  than 
Market  Street — ^Columbus  Avenue. 

The  remaining  important  franchises  begin  to  expire  in  1929, 
when  60%  of  the  mileage  and  at  least  66%  of  the  earning  capacity 
revert  to  the  city  according  to  this  study.* 

Most  of  these  franchises  do  not  definitely  provide  for  City 
regulation  as  to  operation,  wages,  fares,  service,  equipment,  etc. 
The  earlier  ones  imposed  a  car  license  tax  but  the  later  ones 
were  generally  granted  subject  to  a  percentage  tax  on  gross 
receipts  ranging  from  2%  to  4%  maximum.    As  a  matter  of  fact. 


394 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


the  best  paying  lines  in  the  city  bear  no  percentage  tax.  and 
only  about  2%  of  the  mileage  pays  the  4%  rate.  The  average 
per  cent  on  gross  earnings  for  the  system  was  2.032%  in  1908,* 
and  1.89%  in  1911.  No  general  provisions  for  extensions  of 
lines  or  service  were  ever  included. 

Earning   Power.  It    is    not   generally   appreciated   what 

the  exceptionally  high  riding  habit  in  this  city  means  in  the 
earning  power  of  these  remaining  franchises.  If  the  modified 
law  of  the  squares  be  applied,  as  shown  in  Fig.  5,  Chapter  2, 
it  appears  that  the  gross  earnings  for  the  year  1929  will  be 
practically  $20,000,000,  assuming  normal  extension  of  the  system 
(or  possibly  $15,000,000  without  extension).  For  the  entire 
period  earnings  would  aggregate  the  enormous  total  of  $238,000,- 
000.  An  independent  check  on  this  estimate  has  been  obtained 
by  compounding  the  earnings  on  a  5%  basis  per  annum,  resulting 
in  $18,500,000  in  1929,  and  aggregating  during  this  period 
$227,000,000.1 

Continuing  the  present  operating  ratio  and  all  sinking  funds 
carried  to  maturity,  it  apears  that  on  either  basis  the  aggregate 
earnings  by  the  year  1929  will  fall  considerably  short  of  dis- 
charging unfunded  debt,  even  with  no  dividends  paid  outside  of 
the  first  preferred  and  assuming  normal  extension  of  lines  with 
no  competition.  Both  these  estimates  are  based  upon  the  con- 
tinuance of  the  present  rate  of  fare — five  cents. 

Franchise  Maps  and  Expirations,  Results  of  the  above- 
mentioned  franchise  study  are  presented  graphically  herein  as 
the  best  available  method  of  indicating  clearly  the  complicated 
conditions  that  have  arisen.  They  are  to  be  regarded  only  as 
interpreting  the  existing  franchise  records,  and  are  subject  to  the 
questionable  legal  status  discussed  in  this  connection.  They 
show  graphically  the  proportion  of  total  mileage  which  is  appar- 
ently involved  in  this  uncertainty. 

1.  Franchises  claimed,   1902 (Plate  20. ) 

2.  Franchises  and  permits  granted  since  1902 (Fig.  100.) 

3.  Status  of  United  Railroads  franchises  in  1912..  (Plate  21.) 

4.  Fragments  of  system  remaining  after  1929 (Fig.  101.) 

5.  Expiration  map,  from  official  franchise  book. ..( Plate  22.) 

A  study  of  these  maps  reveals  the  condition  that  many  un- 
used franchises    appear    to    exist    without    abandonments    having 

*  Based  upon  the  report  of  William  Dolge.  consulting  accountant,  as  of  the  year  1908, 
since  when  the  mileage  has  remained  practically  constant. 

+  Between  1899  and  1905  the  earnings  actually  increased  at  a  rate  slightly  over  5%  per 
annum  compounded. 


PRESENT   FRANCHISE  STATUS 


395 


been  filed ;  parts  of  franchises  have  been  retained  and  the  re- 
mainder abandoned  without  official  sanction;  some  sections  now 
operated  appear  to  have  no  franchises.  There  have  been  numer- 
ous lapses,  non-conformation  to  franchise  restrictions,  depar- 
tures from  specified  routings,  construction  deferred  beyond  the 
time  limit  or  neglected  entirely,  and  a  wholesale  disuse  of  large 
parts  of  original  franchises  where  overlapping  grants,  given  later, 
rendered  such  disuse  desirable  from  the  standpoint  of  routing 
and  earnings. 

It  is  apparent  that  following  these  questionable  matters  to  a 
conclusion,  in  order  to  establish  the  respective  status  of  City 
and  Company,  involves  much  litigation  and  delay,  and  that  an 
equalization  of  franchise  life  would  be  of  unquestioned  value  to 
the  City  after  the  principal  problems  of  contention  have  been  disposed 
of  by  agreement  or  litigation. 

Questionable  Status.  It  may  be  said,  on  the  other  hand, 

that  former  lapses  have  been  recognized  by  the  municipal  gov- 
ernment without  exacting  any  official  action  by  which  the  City 
has  apparently  in  eflfect  given  its  ''left-handed  consent"  by  allow- 
ing the  Corporation  to  proceed  of  its  own  free  will  without 
requiring  it  to  live  up  to  the  terms  of  its  franchise.  This  lack 
of  effective  supervision  is  not  peculiar  to  San  Francisco,  but  has 
been  the  history  of  utility  undertakings  all  over  the  country,  in 
which  the  City  and  the  Corporation  must  evidently  share  the 
blame. 

As  an  example  of  questionable  interpretation,  it  is  found  that 
the  backbone  of  the  traction  system — the  Market  Street  Railway 
franchises — are  held  by  the  City  to  expire  in  1929,  and  by  the  Com- 
pany, in  1932.  About  $15,(XX),000  difference  in  earning  capacity  is 
involved.  Further,  it  is  practically  impossible  at  the  present  time 
to  determine  with  strict  accuracy  the  amount  of  percentage  taxes  on 
gross  receipts  under  these  various  franchises,  which  are  interpreted 
diflferently  by  the  City  and  the  Company,  resulting  in  a  compromise 
as  detailed  in  Chapter  19. 

I  therefore  strongly  recommend,  as  one  of  the  elements  of  a 
resettlement  plan,  that  the  City  and  the  Company  agree  upon 
some  basis  to  waive  these  franchise  problems  of  the  past,  and 
clear  the  streets  of  all  unused  and  unnecessary  franchises,  in- 
cluding those  which  are  being  operated  simply  to  hold  the  fran- 
chise against  d  possible  competitor.  This,  of  course,  would  only 
be  possible  on  the  following  conditions : 

First.  That  franchises  so  relinquished  should  not  be  re- 
granted  to  competitors;  and 


396 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


PRESENT   FRANCHISE   STATUS 


397 


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I 


FIGURE   100— RAILWAY  FRANCHISES  GRANTED   SINCE  THE 
CONSOLIDATION  OF   1902. 

This  map  gives  an  idea  of  the  very  small  number  of  street  railway  ex- 
tensions built  since  the  consolidation  in  1902.  From  this  map  and  that  of 
existing  trackage,  Plate  1,  may  be  obtained  an  accurate  measure  of  the  ex- 
pansion of  the  traction  system  of  San  Francisco  since  the  consolidation  of  the 
United  Railroads.  And  it  is  of  special  significance  that  no  franchises  hav« 
been  granted  since  the  present  Charter  provisions  governing  street  railways 
went  into  effect,  nor  have  any  extensions  been  built  excepting  those  based 
on  prior  franchise  grants. 


Second.  That  the  present  Municipal  lines  forming  the 
nucleus  of  an  ultimate  Municipal  system  should  be  operated  for 
local  development  rather  than  for  competition.  To  introduce 
indiscriminate  competition,  either  from  the  Municipal  or  other 
private  companies,  would  not,  in  my  judgment,  constitute  a 
panacea  for  traffic  evils.  Rather,  the  co-ordination  of  the  present 
lines  as  a  temporary  expedient  until  the  franchises  expire  or  the 
City  purchases  the  entire  property  should  be  brought  about. 

It  may  be  considered  by  some  that  the  difficulties  in  estab- 
lishing the  City's  franchise  status  are  being  over-estimated, 
especially  in  view  of  the  fact  that  two  important  decisions  have 
been  handed  down  by  the  Superior  Court  in  favor  of  the  City, 
viz.: 

1.  Sutter  Street  Ry.  outer  tracks  on  Market  Street. 

2.  Market  Street  Ry.  tracks  on  California  Street. 

It  is  true  that  these  decisions  are  fraught  with  the  greatest 
importance  and  value  to  the  City,  but  it  must  be  recalled  that  their 
finality  is  still  to  be  determined  by  the  United  States  Supreme 
Court,  and  that  these  represent  only  a  very  small  proportion  of 
the  legal  questions  to  be  adjudicated.  It  has  been  the  experience 
in  Chicago,  New  York,  and  other  cities,  where  complex  franchise 
situations  have  arisen  from  past  neglect  and  abuses,  that  final 
adjudication  has  resulted  in  delays  which  in  the  end  have  not 
entirely  served  the  purpose  contemplated  and  in  addition  the 
cities  involved  have  suffered  from  lack  of  development  and  poor 
service  to  an  extent  which  proves  to  my  mind  that  almost  any  rea- 
sonable working  plan  is  better  than  a  continual  legal  zmrfare. 

Typical  Legal  Questions  Involved 

1.  If  a  franchise  is  granted,  and  subsequently  part  of  the 
route  specified  is  abandoned  in  favor  of  a  slightly  different  route 
under  a  subsequent  franchise,  does  this  invalidate  the  entire 
original  franchise,  when  no  abandonment  of  such  part  has  been 
filed  with  or  accepted  by  the  Board  of  Supervisors? 

2.  Can  a  company  legally  operate  through  service  under  two 
different  but  contiguous  franchises  along  the  same  street,  where 
the  routes  specified  in  the  individual  grants  would  not  permit 
through  operation? 

3.  Can  an  original  franchise  grant  be  legally  extended  for  a 
further  period  without  prescribed  abandonment  proceedings  be- 
ing gone  through,  including  submission,  acceptance,  and  regrant- 


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398 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


MOTt    ONUr  eXISTINa   O^CHATCO  ri«AMCMI«I.S 

INOICATCO.  VCAR    OF   EXPIRATION   SHOWN 
ON   SCRARATC   MA^       COMPANY  CLAIMS 
MARKKT   «T     RY     PRANCHISCS  (SHOWN  OOTTID) 
IXPIRC  l»SC.  AY  ORDER  l«76 


0 

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51  1    I'S'S 


FIGURE    101 —FRANCHISES    REMAINING   AFTER    1929. 

The  year  1929,  when  many  important  franchises  expire,  will  mark  an  im- 
portant epoch  in  the  history  of  transportation  in  this  city;  for  the  frag- 
mentary nature  of  the  railway  system  then  remaining  to  the  United  Railroads 
practically  dictates  a  radical  change  then,  if  not  long  before.  Practically 
no  uncertainty  exists  except  in  the  case  of  the  Market  Street  Railway  fran- 
chises (shown  dotted)  which  the  Company  considers  as  expiring  in  1932  in 
accordance  with  amending  Order  1676,  while  by  the  City's  claims,  they  ex- 
pire in  1929,  as  covered  by  Order  1514.  This  difference  of  interpretation 
involves  about  $15,000,000— the  estimated  earnings  of  these  particular  fran- 
chises for  approximately  three  years.  When  these  franchises  expire,  the 
Company's  yearly  earnings  will  be  reduced  nearly  two-thirds. 

ing  by  the  Board  of  Supervisors?  And  does  a  simple  reference 
in  the  extension  order  to  the  original,  without  specifying  in 
detail  the  terms  and  routes  of  the  original  franchise,  constitute 
a  legal  extension  of  franchise?  Under  the  State  laws,  it  appears 
that  without  definite  forfeiture  and  regranting  proceedings  an 
extension  cannot  be  granted  by  simple  order;  that  is,  the  exten- 
sion order  must  be  obtained  under  precisely  the  same  proceed- 
ings as  required  for  the  granting  of  a  new  franchise. 


PRESENT   FRANCHISE   STATUS 


399 


4.  Can  two  non-related  subjects  be  embraced  in  a  single 
ordinance ;  c.  g.,  consent  for  abandonment,  and  regrant  over  the 
same  abandoned  route  under  new  franchise  conditions? 

5  (a).  Is  a  franchise  existent  and  valid  if  granted  subject 
to  Section  502  of  the  Civil  Code,  and  construction  does  not  start 
on  any  part  of  the  routes  outlined  therein  until  after  the  expira- 
tion of  the  number  of  years  exceeding  that  allowed  in  Section 
502,  and  no  extension  of  time  or  other  grant  has  been  made  to 
maintain  its  validity? 

5  (b).  Or,  after  the  above  mentioned  period  of  non-construc- 
tion has  elapsed,  does  the  subsequent  construction  of  a  part  of 
the  route  granted  constitute  a  fulfillment  of  the  conditions  and  the 
reclaiming  of  the  rights?  The  question  involved  here  is  the  same 
as  in  1 — whether  the  construction  of  only  a  part  of  a  route 
granted,  without  official  abandonment  proceedings,  invalidates 
the  entire  grant. 

6.  Where  a  franchise  is  granted  from  a  given  date,  "during 
corporate  existence,"  and  the  corporation  disposes  of  its  prop- 
erties and  franchises  to  another  corporation  which  continues  to 
operate  under  the  original  franchise,  does  the  original  franchise 
right  continue  so  long  as  the  original  corporation  maintains  its 
corporate  existence,  whether  or  not  it  has  the  ponder  to  resum^^ 
operation  under  its  original  rights?  In  other  words,  has  the  original 
corporation  forfeited  its  charter,  or  "franchise  to  be,"  because  of 
having  divested  itself  of  its  franchise  and  therefore  become  unable 
to  carry  out  the  purposes  for  which  it  was  incorporated?  This 
question  hinges  entirely  upon  the  terminology  "during  corporate 
existence,"  and  the  purpose  of  maintaining  such  existence. 

7.  It  is  understood  that  a  number  of  the  franchises  granted 
about  1890  contain  the  following  clause : 

'The  rights  and  privileges  mentioned  in  this  order  are  granted  to  and 
shall  be  possessed  and  enjoyed  by  said  grantees,  their  successors  or  assigns, 
upon  such  terms,  conditions  and  restrictions  as  are  now  imposed  or  may 
he  hereafter  imposed  by  orders  of  the  Board  of  Supervisors  or  the  laws 
of  the  State  of  California,"  etc. 

8.  In  the  Market  Street  Railway  franchise  (and  others)  the 
original  grant  of  50  years  (Order  1514)  was  later  amended 
(Order  1676)  for  "50  years  from  and  after  the  passage  of  this 
Order."  Whether  this  term  may  be  construed  as  50  years  from 
and  after  the  date  of  the  original  or  the  amended  grant  involves 
approximately  $15,000,000  in  earning  capacity  between  the  two 
possible  dates  of  expiration,  viz.,  1929-1932. 


400 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


SCHEDULE  OF  RAILWAY  FRANCHISE  EXPIRATIONS 
Compiled  from  the  Official  Franchise  Book  of  the  Board  of  Supervisors. 


s 


I; 


Year 

of 

Expiration 


Operating  Company 


Miles  Per  Cent 
Single       of 
Track    Total 


'A' 


Prior 

1913 
1929 


1930 
1931 
1933 
1936 
1940 
1941 
1942 
1944 
1947 


Geary  Street  Municipal 14 .  29 

U.  R.  R.  lines  operated  without  franchise  or  under 

revocable  permit 10 .  30 


Presidio  and  Ferries  Railroad. 


24.590 
15.260 


United  Railroads , 113.4 

California  Street  Cahle  Railway ] . .  11  is 

Sutter  Street  Railway 1.5 


Total  Expirations  to  1930 

United  Railroads  Mileage  Expiring 


United  Railroads. 


Total  1930-1947 

Grand  Total  to  1947. 


166.250 


11.000 

10.850 

.264 

8.834 

28.000 

9.600 

13.400 

7.800 

.419 

90.167 


9.0 
6.0 


126.400        50.0 


65.0 
58.3 


.3 
.2 
.1 

3.4 


4. 
4. 


10 
3, 

5. 
3. 


35.0 


256.417       100.0 


CHAPTER  19 

METHOD  OF  COMPUTING  TAXABLE 

RECEIPTS 

RAILWAY  LINES  OF  DUPLICATE  SERVICE 

Special  Report  Submitted  to  Finance  Committee,   Board  of 

Supervisors,  December  21,  1912 

In  accordance  with  yjour  expressed  desire  to  have  mp  views  on  the 
proper  method  of  determining  the  franchise  taxes  that  majf  he  levied  on  the 
receipts  of  street  railway^  lines  operating  under  existing  franchises,  I  sub- 
mit herewith  such  conclusions  as  I  have  been  able  to  formulate  from  the 
available  data  and  within  the  limited  time  placed  at  mp  disposal,  without 
unduly  interfering  with  the  submission  of  m\f  report  on  transportation  condi- 
tions to  the  Board  of  Supervisors.  I  have  endeavored  to  make  clear  in  the 
discussion  the  definite  limits  of  this  tax  problem  and  to  suggest  a  means 
of  solution,  at  least  for  the  present  and  future.  I  may  also  say  thai 
after  some  study,  the  problem  developed  many  complications  that  were 
not  apparent  when  it  was  first  presented  to  me,  and  that  I  am  therefore 
unable  to  give  you  a  more  definite  answer  upon  some  phases  of  it  without 
legal  advice. 

General  Principles 

The  subject  may  be  discussed  from  several  different  points  of 
view: 

1st.  An  occupancy  tax  from  which  the  City  would  derive 
a  return  for  the  right  of  occupying  its  streets  with  tracks,  ir- 
respective of  the  uses  to  which  these  tracks  are  put — i.  e.,  irrespec- 
tive of  number  of  cars  or  passengers  carried. 

2d.  An  occupancy  tax  which  simply  recognizes  the  City's 
right  to  tax  users  of  its  streets  in  proportion  to  the  number  of 
vehicles  in  use. 

3d.  A  usage  tax,  from  which  the  returns  to  the  City  would 
be  proportionate  to  the  relative  utilization  of  these  tracks,  and 
therefore  proportionate  to  the  income  derived  therefrom  irrespec- 
tive of  the  mode  of  operation  or  routing  as  specified  in  the  orig- 
inal franchises. 

4th.  Each  route  to  be  considered  as  operated  by  an  inde- 
pendent company  under  the  individual  franchise  conditions  now 
existing. 


f 


I, 


402 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


TAXABLE  MILEAGE 


403 


5th.  All  routes  considered  as  part  of  a  comprehensive  unified 
system  as  now  operated. 

Available  Facts 

1.  Franchises  granted  in  the  past  have  not  been  uniform  in 
the  matter  of  license  taxes  exacted  from  the  holders  of  such 
franchises.  Some  franchises  contain  no  provision  for  the  pay- 
ment of  taxes  on  earnings,  and  others  stipulate  that  two,  three, 
or  four  per  cent  of  the  receipts,  respectively,  on  all  lines  operated 
under  such  franchises  shall  be  paid  to  the  City. 

2.  The  reorganization  of  the  unified  system  has  been  carried 
out  in  such  a  manner  that  the  original  identity  of  many  of  the 
routes  specified  in  the  franchises  has  been  completely  lost,  with- 
out official  recognition  by  the  municipality  of  the  validity  of  such 
changes.  In  the  absence  of  such  recognition,  it  therefore  is  a 
legal  question  whether  the  original  terms  of  the  franchises  are 
being  carried  out  in  such  a  manner  as  to  permit  of  the  direct  ap- 
plication of  the  definite  provisions  therein,  including  the  com- 
putation of  percentage  payments.  Consequently,  some  modified 
method  of  accounting  may  be  necessary  to  determine  the  taxable 
receipts  under  changes  in  routing  that  may  obtain  from  year  to 
year. 

3.  In  several  cases,  taxable  routes  now  operate  over  sections 
of  line  which  are  not  taxable,  according  to  the  original  franchises, 
and  conversely,  exempt  routes  operate  over  sections  of  line 
originally  granted  under  percentage  franchises. 

4.  Definition  of  the  term  "taxable  receipts"  in  the  franchises 
is  not  specific,  but  for  purposes  of  uniformity,  has  been  audited 
on  the  basis  of  passenger  earnings  (revenue)  exclusive  of  other 
sources  of  revenue  such  as  advertising  and  sale  of  power,  which 
clearly  have  little  relation  to  either  an  occupancy  or  a  usage  tax. 

It  will  be  apparent  from  the  above  that  there  are  two  distinct 
problems  involved:  (a)  the  operating  problem;  and  (b)  the 
legal  question.  The  latter  will  of  course  require  study  and  definition 
by  your  City  legal  department ;  the  former  involves  matters  upon 
which  I  am  perhaps  better  qualified  to  assist  you. 

The  Operating  Problem.  While  the  original  franchises 
were  granted  under  operating  conditions  relatively  simple  as 
compared  with  those  of  the  present  time,  the  immediate  problem, 
as  I  see  it,  is  the  determination  of  a  practicable  unit  of  traffic,  as 
reflected    in    passenger  earnings.     This  unit  is  discussed  herein. 

The  Legal  Question,  It  is  clear  that,  as  a  result  of  the 
unification  of  the  various  original  properties,  changes  in  routing 


have  been  made,  ostensibly  in  the  interests  of  the  public,  but 
which  have  not  been  officially  sanctioned  by  the  legislative  body 
of  your  city  government.  It  is  unnecessary  to  cite  these  changes 
in  detail,  but  the  fact  that  definite  supervision  and  certification 
of  these  changes  has  not  taken  place  in  the  past  may  very  likely 
operate  to  modify  the  relative  position  of  City  and  Company 
through  tentative,  if  not  official,  recognizance  when  all  of  the 
legal  phases  of  this  matter  are  thoroughly  analyzed.  At  best, 
it  is  complicated,  as  already  set  forth  by  your  City  Attorney 
when  a  compromise  was  suggested  by  him  and  accepted  by  the 
City  during  a  former  administration.  I  can  only  suggest  that 
if,  after  a  study  of  these  matters,  an  agreement  could  be  entered 
into  by  the  City  and  Company  whereby  an  equalization  of  these 
various  percentage  taxes  and  a  uniform  levy  could  be  secured, 
the  results  in  clarifying  the  situation  and  simplifying  the  account- 
ing would  be  of  advantage  to  the  City,  and  well  worth  the  effort. 
The  question  of  an  occupancy  versus  a  usage  tax  is  not  di- 
rectly involved  in  the  operating  problem  and  should  be  deter- 
mined from  a  study  of  the  original  franchises  by  your  Board  or 
through  the  advice  of  the  City  Attorney.  Personally,  I  favor 
the  latter,  as  far  as  my  own  study  of  the  franchise  situation  has 
enabled  me  to  reach  a  definite  conclusion. 

Viewpoints  of  City  and  Company 

The  theory  upon  which  your  accountant  has  proceeded  is  that 
an  equitable  basis  for  the  computation  of  the  amount  due  the 
City  and  County  under  the  percentage  clauses  of  the  various 
franchises,  and  withoiit  consideration  of  transfers,  is  ''that  the 
taxable  receipts  are  to  the  gross  receipts  of  any  particular  route 
as  the  taxable  mileage  is  to  the  entire  mileage,"  and  that,  *'no 
allowance  can  be  made  for  the  fact  that  more  than  one  route 
passes  over  any  given  distance  of  so-called  taxable  mileage." 

As  I  understand  it,  the  Company  takes  the  position  that  so 
long  as  it  pays  a  percentage  tax  on  one  line,  which  may  be  re- 
garded as  the  equivalent  of  that  granted  in  the  franchi.se,  it  is  free 
to  operate  as  many  lines  as  may  be  desirable  over  sections  of 
this  route  without  being  taxed  thereon  unless  these  additional 
lines  are  also  distinctly  percentage  lines  in  toto,  but  that  in  the 
interest  of  arriving  at  a  harmonious  solution,  the  original  line 
should  be  taxed  the  full  percentage  of  the  original  franchise,  and 
that  the  remaining  secondary  or  duplicate  service  lines  should 
bear  only  a  pro-rata  portion  of  taxes  according  to  the  number 
of  secondary  lines  operated  (i.  r.,  50%  if  only  one  secondary  line 
in  use.) 


I 


404 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


TAXABLE  MILEAGE 


405 


i! 


Your  accountant  claims  that  it  is  immaterial  to  the  munic- 
ipality whether  the  route  operated  is  profitable  to  the  Company 
or  not,  and  that  the  municipality  is  not  responsible  for  technical 
difficulties  encountered  in  determining  taxable  receipts,  which 
difficulties  have  arisen  as  a  result  of  the  rearrangement  of  its 
routing,  subsequent  to  consolidation  of  the  originally  indepen- 
dent properties.  In  the  abstract,  I  am  inclined  to  agree  with 
this  viewpoint,  although  some  concessions  may  be  entirely  war- 
ranted in  the  case  of  routes  clearly  being  operated  at  a  heavy 
loss,  if  so  authorized  by  the  Board  of  Supervisors. 

There  is  recommiended  in  both  reports  of  your  accountant  that 
the  Board  of  Supervisors  require  to  be  submitted  from  all  operating 
companies  complete  statements,  showing  official  mileage  of  fran- 
chises by  Order  numbers,  with  subsequent  changes  in  routing 
contemplated.  This  suggestion  should  be  carried  out,  as  herein- 
after modified.  It  will  place  in  the  hands  of  the  Board  of  Su- 
pervisors complete  data  upon  the  operation  of  the  City's  system, 
which  should  in  any  case  be  available  as  a  basis  or  datum  upon 
which  the  service  rendered  by  the  operating  companies  may  be 
from  time  to  time  examined  and  verified  by  the  proper  authori- 
ties. This  will  not  only  insure  to  the  City  the  proper  perform- 
ance and  service  under  the  schedules  submitted,  if  adequate  in- 
spection is  carried  out,  but  also  insure  the  Company  against  un- 
warranted criticism  of  its  service. 

The  introduction  of  additional  complication  of  transfers  in 
the  determination  of  receipts  between  interconnected  systems  or 
lines  is  not  believed  to  be  a  matter  of  consequence,  for  the  great 
advantage  to  the  riding  public  of  liberal  transfers  is  so  apparent 
as  to  outweigh  a  possible  gain  by  basing  taxable  receipts  upon 
receipts  from  other  than  actual  originating  trafUc. 

Taking  the  extreme  viewpoints  in  this  problem,  it  may  be 
held,  on  the  one  hand,  that: 

1st.  When  any  line  operates  over  a  section  of  track  granted 
by  the  City  under  a  percentage  clause,  this  line  becomes  a  per- 
centage line,  whether  occupying  this  track  exclusively  or  in  part, 
and  all  of  the  receipts  of  such  line  should  be  taxable  in  full  un- 
der the  percentage  clause  of  the  underlying  franchise,  and  that 
it  is  immaterial  to  the  City  what  changes  in  routing  take  place, 
&o  long  as  the  usage  tax  contemplated  is  paid  in  proportion  to  the 
total  traffic.     And,  on  the  other  hand, 

2d.  It  may  be  claimed  that  the  original  intent  of  exempt 
franchises  should  be  perpetuated,  even  though  some  changes 
in  routing  have  taken  place  and  thereby  bringing  certain  pro- 
portions of  the  exempt  lines  within  the  pale  of  percentage  clauses 


J, 


of  underlying  franchises,  because  the  City  has  directly  benefited 
by  this  re-routing,  as  a  result  of  the  unification  of  the  properties 
by  consolidation  with  its  attendant  increase  of  transfer  privileges. 
Both  of  these  viewpoints  I  believe  to  be  untenable  in  the 
present  situation,  and  that  a  much  more  reasonable  solution  of 
the  difficulty  would  be  that  whatever  sections  of  line  or  street 
have  been  enfranchised  under  clauses  providing  for  the  taxation 
of  receipts,  these  sections  should  continue  to  derive  full  per 
cent  tax  from  all  traffic  originating  thereon,  whatever  routings  may 
exist  beyond  the  limits  of  such  section  of  line ;  in  other  words, 
that  these  underlying  franchises  should  hold  their  full  percentage,  but 
only  on  the  originating  traffic. 

Originating  Traffic.  Were  it  possible  to  obtain  this  actual 
originating  revenue  traffic,  the  computation  of  returns  to  the  City 
would  be  simple.  Theoretically,  this  revenue  should  be  based 
upon  passenger  mileage  over  the  given  section  of  line,  with  a  unit 
income  per  passenger-mile  derived  from  the  total  income  of  the 
system  divided  by  the  total  passenger  mileage  operated  during 
a  given  period.  But  in  the  absence  of  the  latter  (which  cannot 
be  determined  in  a  system  with  a  flat  5-cent  fare  throughout),  this 
is  absolutely  impracticable. 

The  originating  revenue  traffic  might  also  be  determined  upon 
a  similar  basis  of  seat  mileage,  car  mileage,  route  mileage,  and 
lotalized  track  mileage,  and  finally  by  actual  difference  in  regis- 
tration in  the  number  of  revenue  passengers  recorded  at  the  be- 
ginning and  at  the  end  of  the  percentage  section  of  line.  But 
the  last-named  method  would  again  require  an  incommensurate 
amount  of  labor  and  expense  on  the  part  of  the  City  for  verify- 
ing this  registration,  unless  conductors'  registrations  were  ac- 
ceptable. And  even  in  this  event,  it  is  apparent  that  the  City 
would  then  derive  no  revenue  from  through  traffic  not  originating 
within  the  percentage  section  of  the  line,  which  is  not  in  accord- 
ance with  the  spirit  of  the  franchise  clause  as  a  usage  tax. 
Furthermore,  the  transfer  traffic  using  this  section,  but  originat- 
ing elsewhere  on  the  system,  would  be  neglected. 

Practical  Bases  of  Computation.  For  the  purpose  of 
avoiding  the  annual  expense  of  audit,  and  the  delay  resulting 
from  an  adjustment  of  the  opposed  conceptions  of  this  tax,  the 
simplest  method  is  unquestionably  that  based  upon  proportion- 
ate route  mileage,  which  has  been  used  heretofore.  But  it  must 
be  admitted  that  this  basis  conforms  more  nearly  to  the  con- 
ception of  an  occupancy  tax  than  to  a  usage  tax,  and  herein  has 
arisen  most  of  the  contention  in  the  interpretation  of  "duplicate 


406 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


TAXABLE  MILEAGE 


407 


« 


t 


; 


service."  In  other  words,  taxes  are  imposed  on  line  receipts 
originating  mostly  in  other  sections  of  the  city,  which  are  exempt 
from  percentage  tax,  even  though  practically  no  traffic  originates 
within  the  percentage  section  under  consideration. 

If  the  conception  of  the  usage  tax  is  finally  accepted  as  con- 
trolling the  assessment  under  these  franchises,  it  is  clear  to  me 
that  a  basis  must  be  used  wherein  the  assessment  levy  is  ap- 
proximately proportioned  to  the  usage  or  traffic  over  such  per- 
centage sections  of  line.  The  only  condition  under  which  the 
route  mileage  basis  would  be  even  approximately  correct  would 
be  where  all  cars  on  a  given  line  or  route  operate  from  terminus 
to  terminus  and  no  short-haul  trippers  are  operated,  which  is 
neither  the  case  now  nor  in  accordance  with  scientific  routing. 
A  satisfactory  approach  to  the  correct  basis  cannot  therefore  be 
obtained  by  using  the  proportionate  mileage  of  each  individual 
route,  as  your  accountant  has  done. 

Recommended  Method.  I  can  see  no  alternative  but  to 
accept  the  next  approximation — viz.,  car  mileage — especially  in 
view  of  the  re-routing  which  I  shall  recommend  to  the  Board  of 
Supervisors.  In  the  case  of  the  Polk  Street  line,  I  was  satisfied 
that  the  route  mileage  basis  would  suffice,  inasmuch  as  practi- 
cally all  of  the  cars  would  run  the  full  length  of  the  route ;  that  is, 
to  the  Exposition  loop.  But  for  the  computations  on  the  existing 
system,  I  believe  that  the  most  equitable  result  would  be  secured 
by  computing  the  taxable  returns  to  the  City  as  follows : 

The  taxable  receipts  of  any  route  bear  that  proportion  to  the 
receipts  of  the  entire  route  as  the  car  mileage  over  the  given  section 
of  percentage  track  bears  to  the  total  car  mileage  operated  over  the 
entire  route,  this  car  mileage  to  be  determined  as  the  average  opn 
crated  during  the  year  as  based  upon  official  schedules  submitted, 
and  to  include  revenue  mileage  only. 

The  inclusion  of  all  contributing  routes  on  a  full  taxable  basis 
appears  justifiable  on  the  theory  that  if  each  individual  route 
were  considered  as  operated  by  an  independent  company,  there 
would  exist  no  valid  reason  for  discrimination  between  them, 
unless  by  definite  agreement  with  the  Board  of  Supervisors  in 
authorizing  such  a  departure  from  the  provisions  of  the  underly- 
ing franchise. 

This  basis  requires  no  arbitrary  approximations  by  either 
the  City  or  Company,  as  is  now  under  contention,  nor  arbitrary 
assumptions  as  to  primary,  secondary,  and  tertiary  lines,  which 
assumptions  are  always  open  to  argument ;  it  imposes  a  percent- 
age tax  practically  in  proportion  to  the  usage  of  the  streets  for 
passenger   revenue   purposes ;  and   it   equalizes   more   nearly   in  ac- 


cordance with  originating  traffic  the  assessment  on  outlying 
exempt  franchises  in  which  duplicate  or  multiple  service  is  in- 
volved. It  necessarily  requires  operation  by  fixed  schedule 
(which  in  any  case  is  desirable  from  the  standpoint  of  conven- 
ience to  the  public)  and  the  verification  of  such  schedules  by  the 
City  from  time  to  time,  together  with  the  full  knowledge  of  and 
certification  to  any  schedule  modifications  that  the  Company 
may  desire  to  make. 

It  is  true  that  a  still  closer  approximation  to  the  ideal  might 
be  made  by  adopting  a  basis  of  seat  mileage  instead  of  car  mile- 
age in  order  to  recognize  the  difference  in  the  size  of  cars  op- 
erated throughout  the  system,  thus  coming  one  step  nearer  to 
the  theoretical  passenger  mileage.  But  inasmuch  as  it  is  a  prac- 
tical impossibility  to  operate  without  an  occasional  interchange 
of  equipment  due  to  accidents,  emergencies,  and  other  causes, 
this  introduces  an  additional  complication  and  expense  of  audit, 
both  on  the  part  of  the  City  and  of  the  Company,  which  I  be- 
lieve is  not  warranted  under  present  conditions. 

Basis  of  Settlement.  In  view  of  the  expense  and  delay 
already  incurred  in  the  adjustment  of  this  question,  I  am  of  the 
belief  that  some  such  compromise  as  was  entered  into  subsequent 
to  the  submission  of  the  first  report  of  your  accountant  in  1908 
be  applied  to  the  settlement  of  the  calendar  year  now  under  con- 
sideration, ending  December  31,  1911;  but  that  all  future  com- 
putations be  made  upon  the  car  mileage  basis  as  above  recom- 
mended and  that  steps  be  taken  to  secure  the  continued  sub- 
mission of  schedule  data  necessary  for  the  proper  audit  without 
incurring  the  labor  and  expense  involved  as  in  the  past.  Such 
operating  records  as  will  be  found  (see  Chapter  7,  Rerouting)  in 
my  report  on  transportation  conditions  will  furnish  a  guide 
for  the  City  in  this  matter.  And  some  person  or  persons  quali- 
fied by  experience  in  the  knowledge  of  railway  operation  and 
schedules  should  be  delegated  to  analyze  and  report  to  your  Board. 
In  case  a  Citv  Public  Service  Commission  is  established, 
such  matters  would  logically  come  within  its  jurisdiction. 


I 

i. 


II 

1 


APPENDIX 


Review  of  Transit  Developments  in  San  Francisco. 

Text  of  Charter  Amendment  No.  34. 

Operating  Plans  for  Lower  Market  Street. 

Condensed  Specifications  of  Municipal  Car. 

General  Index. 

Index  of  Exhibits,  Figures  and  Plates. 

Statistical  Exhibits. 

Plates  Accompanying  Report. 


f 


REVIEW  OF  TRANSIT  DEVELOPMENT  IN 

SAN  FRANCISCO 

Past  records  of  earl^  developmenU  n^hile  not  alwa})s  of  immediate  value, 
nevertheless  offer  guidance  in  avoiding  the  repetition  of  previous  blunders. 
Further,  the^  help  the  student  of  civic  affairs  to  form  an  adequate  concep- 
tion of  local  difficulties  that  have  been  met  and  overcome,  and  particularly 
to  follow  the  general  trend  of  corporate  and  public  opinion  upon  such  mat- 
ters as  transportation,  for  example,  in  regard  to  types  of  car,  competition, 
methods  of  financing,  franchise  terms,  and  municipal  orvnership.  The  facts 
presented  have  been  gathered  from  all  available  sources  not  only  during  the 
study  of  corporate  property  and  finance,  but  also  in  connection  rvith  the 
franchise  study  contributed  by  co-operation  of  the  Board  of  Supervisors. 
The  exact  historical  accuracy  cannot,  of  course,  be  verified  beyond  that  of 
the  records  available. 

CHRONOLOGY 

1776.  First  settlement  on  the  Peninsula  by  Franciscan  mission- 
aries near  what  is  now  Sixteenth  and  Dolores  Streets. 
A  few  years  later  the  village  ''Verba  Buena"  was 
settled  on  the  Bay  shore  between  Clark's  Point  and 
Telegraph  Hill. 

Streets  laid  out  in  Yerba  Buena. 

Name  of  town  changed  to  San  Francisco. 

First  period  of  rapid  population  growth  following  the 
discovery  of  gold.  City  increased  in  population  from 
2,000  to  15,000  within  a  year. 

Plank-paved  toll  roads  constructed  on  Folsom  and  Mis- 
sion Streets  under  eight-year  franchise.  At  this  time 
horses  and  vehicles  provided  by  livery  stables  furnished 
the  only  means  of  transportation. 

Omnibus  Period — 1852-1862 

1852.  Rapid  increase  in  population  resulted  in  the  establishment 
of  the  first  regular  transportation  facilities  in  San  Fran- 
cisco— an  omnibus  line  (Yellow  Line)  operated  by 
Crimm  and  Bowman  between  postoffice  at  Kearny  and 
Clay  Streets,  and  Mission  Dolores,  via  Kearny,  Third 
and  Mission.  Headway  30  minutes.  Fare  50  cents, 
$1.00  on  Sundays. 


1839. 
1847. 
1849. 


1850. 


1; 


412 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


HISTORICAL  REVIEW 


413 


! 


liill  i^ 


m 


1857- 
1862. 


a' 


1854.  Second  omnibus  route  put  into  operation  to  Mission 
Dolores  by  Yellow  Line  via  Folsom  and  Sixteenth 
Streets;  in  1855  commenced  operation  on  a  10-minute 
headway  between  Third  and  Townsend  Streets  and 
Meigg's  wharf — fare  15  cents,  later  reduced  to  10  cents. 
Shortly  afterwards  a  line  was  started  between  the  Pre- 
sidio and  the  postoffice,  running-  every  hour. 

1857.  First  opposition  omnibus  line  started — People's  or  Red 
Line — operating  a  30-minute  headway  to  Mission  Do- 
lores and  a  lO-minute  headway  between  North  Beach 
and  South  Park,  later  reduced  to  five  minutes. 
Other  omnibus  lines  entered  the  field,  and  the  routes  were 
expanded  considerably.  Fares  finally  became  standard 
at  10  cents.  Drivers  were  paid  $2.50  for  a  12-hour  day. 
Tn  1862  the  Red  Line  had  receipts  of  about  $66,000,  and 
operating  expenses  of  $50,000.  At  that  time  the  popula- 
tion of  the  city  was  about  50,000,  and  was  rapidly  out- 
growing the  omnibus  system. 

Horse  Car  Period~l  860-1 872 

1857.  Legislature  granted  Thomas  Hayes  a  franchise  for  the 
first  street  railway  in  San  Francisco,  along  Market 
Street  from  California  to  Mission   Dolores. 

1860.  The   San    Francisco   Market   Street    Railroad   Company, 

afterwards  the  Market  Street  Railroad  Company,  took 
over  franchise,  graded  Market  Street,  and  built  the  line, 
which  was  operated  at  first  by  steam  dummy  power,  and 
later  by  horses.  This  railroad  was  put  in  operation  at 
about  the  same  time  as  the  first  street  railway  in  Eng- 
land. In  1863  the  line  was  extended  to  the  water  front 
and  to  Twenty-fifth  and  Valencia  Streets.  Headway, 
30  minutes. 

1861.  Omnibus   Railroad  Company,  formerly  the   People's  or 

"Red   Line,"   was   incorporated   following  the   immediate   . 
success  of  the  Market  Street  Railroad,  which  materially 
reduced  traffic  on  the  omnibus  lines.     Its  franchise  ap- 
proximated the  old  omnibus  routes,  and  the  system  was 
put  into  operation  in  1863. 

1861.  North  Beach  &  Mission  Railroad,  formerly  the  "Yellow" 
Omnibus  Company,  was  incorporated  and  built  lines 
approximately  following  the  old  omnibus  routes. 

1861.  Central  Railroad  Company  formed  and  received  franchise 
from  the  Ferry   (foot  of  Vallejo  Street)   to  Sixth  and 


LEGEND 

SAN  FRANCISCO  AND  SAN  JOSE 

RAILROAD  CO  (STEAM) 

CENTRAL  RAILROAD  CO 

tMORSE)  -     

SAN  FRANCISCO  MARKET  ST. 

RAILROAD  COCSIEAMANDMOftSt) 
OMNIBUS  RAILROAD  CO. 

(HORSE) 

NORTH  BEACH  AMDMISSIOM 

RAILROAD  (MORSE) 

SCALE 
0  1000     ZOOO    3000  FEET 


RAILWAYS  OPERATING 
1864-5 

SAN  FRANCISCO 

ACCOMPANYING TMt  RtPORT  Of 
BION  J.ARNOLD 

ON    TMIL 

SAH  FRANCISCO  TRANSPORTATION  PROBLEM 
TO  THE  HON.  BOARD  OF  SUPERVISORS 
CITY    OF    SAN  FRANCISCO. 


FIGURE    102— RAILWAYS    OPERATED    IN    SAN    FRANCISCO,    1864-5. 

As  representing  the  early  conditions  of  street  railway  transportation 
here,  this  map  shows  clearly  the  concentration  of  traffic  within  the  Mis- 
sion district,  south  and  east  of  Market  Street,  and  the  resulting  limits  of 
travel. 


fi 


414  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

Brannan,  following  very  closely  part  of  the  present 
Sixth  and  Sansome  Street  route;  and  from  Taylor  to 
Lone  Mountain  Cemetery  on  Turk  Street.  The  first 
mentioned  line  traversed  the  most  thickly  settled  sec- 
tions of  the  city,  and  is  said  to  have  had  very  high  re- 
ceipts. 

1863.  City  Railroad  Company  formed  to  carry  patrons  to 
Woodward's  Gardens,  an  amusement  resort  between 
Thirteenth,  Fifteenth,  Mission  and  Valencia  Streets. 
The  original  line  started  from  Second  and  Mission, f  but 
was  extended  from  time  to  time  to  Twenty-sixth  and 
Mission  and  to  the  Ferry,  and  to  Dupont  and  Bush  via 
Fifth  and  Market.  All  extensions  were  built  out  of 
earnings. 

1863.  First  train  operated  between   Mission   Dolores  and  San 

Francisquito  Creek  by  the  San  Francisco  &  San  Jose 
Railway  Company,  which  ran  four  trains  daily.  Later 
the  line  terminated  at  Market  and  Valencia;  and  occa- 
sionally up  to  1868,  when  steam  operation  was  forbid- 
den on  Market  Street,  trains  landed  passengers  in  front 
of  the  Palace  Hotel. 

1864.  Legislature  granted  Abner  Doble  the  right  to  construct 

a  tunnel  through  Russian  Hill  from  Mason  to  Hyde  or 
Larkin  Street.  This  is  the  same  location  as  the  Broad- 
way tunnel  recently  proposed  and  indicates  how  early 
the  necessity  for  a  tunnel  under  that  ridge  was  recog- 
nized. 

1866.  Front,  Mission  &  Ocean  Railroad,  incorporated  1862, 
(later  the  Sutter  Street  Railway  Co.,  incorporated  1887) 
built  a  line  from  Broadway  and  Battery  to  Broadway  and 
Polk  via  Battery,  Sutter  and  Polk. 

1866.  Potrero  &  Bay  View  Railroad  Company  built  an  expen- 
sive line  to  the  racecourse  on  Bay  View  Avenue,  re- 
quiring the  construction  of  two  bridges,  each  a  mile 
long,  and  much  excavation  in  Potrero  Hill.  At  this  time 
all  franchises  specified  a  5-cent  fare  on  horse-car  lines, 
but  in  view  of  the  expensive  construction  of  the  Bay 
View  line  a  charge  of  three  tickets  for  25  cents  and  an 
extra  fare  below  Islais  Creek  was  allowed. 
The  other  companies  finally  succeeded  in  raising  their  fare 
to  four  tickets  for  25  cents,  following  a  Court  decision 
that  they  could  add  the  Federal  tax  to  their  fare. 


HISTORICAL  REVIEW 


415 


1866- 
1870. 


1868. 


1870. 


1870. 


1871 


1875. 


tAlso   New   Montgomery  and   Market   Streets. 


1869. 
1873. 


Period  of  real  estate  speculation.  Numerous  franchises 
were  granted,  but  many  lines  were  never  built.  Great 
real  estate  activity  was  caused  about  1869  by  the  com- 
pletion of  the  Central  Pacific  Railroad. 

Market  Street  Railroad  obtained  additional  franchises  "to 
construct  an  iron  railroad  of  double  or  single  track"  on 
McAllister  to  Laguna,  on  Hayes  to  Divisadero,  and 
Market  from  Valencia  to  Castro.  This  franchise  with 
the  original  grant  covered  practically  all  of  the  lines 
later   operated   by   the    Market   Street   Cable    Railway 

Company. 
Eight  railway  companies  in  operation  with  35  miles  of 
single  track  and  from  three  to  four  cars  operated  per 

mile. 

Act  of  the  Legislature  gave  cities  the  right  to  grant  fran- 
chises to  street  railways  for  terms  not  exceeding  25 
years ;  maximum  fare  10  cents,  work  to  be  started  within 
one  year  and  completed  within  three  years. 

Front,  Mission  &  Ocean  Railroad  (then  known  as  the  Sutter 
Street  Railroad)  extended  its  line  from  Polk  Street  to 
Presidio  and  Geary  via  Bush,  Fillmore,  California  and  Pre- 
sidio, and  also  to  Harbor  View. 

Extract  from  city  directory  under  the  head  of  "Rail- 
roads" :  "It  is  hardly  too  much  to  say  that  the  modern 
horse  car  is  among  the  most  indispensable  conditions 
of  modern  metropolitan  growth.  It  is  to  a  city  what 
steam  car  and  steamship  lines  are  to  the  state  and  the 
country.  In  these  modern  days  of  fashionable  eflPemi- 
nacy  and  flabby  feebleness,  which  never  walks  when  it 
can  possibly  ride,  the  horse  car  virtually  fixes  the  ulti- 
mate limits  of  suburban  growth." 

Cable  Railway  Period— 1872-1891 

Cable  railway  system  invented  by  Benjamin  H.  Brooks, 
a  San  Francisco  attorney,  and  partly  developed  by  him. 

Clay  Street  Hill  Railroad  Company,  the  first  cable  line 
in  the  world,  started  operation  on  Clay  Street  from 
Kearny  to  Leavenworth,  and  later  extended  to  Van 
Ness  Avenue.  Cable  system  perfected  by  A.  S.  Hallidie 
and  line  built  at  a  cost  of  $68,000  per  mile  of  single 
track.  It  was  very  profitable  from  the  start,  often  pay- 
ing in  a  single  year  as  much  as  35%  of  the  money  in- 
vested. 


I 


416 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


HISTORICAL  REVIEW 


417 


;i  i 


FIRST  CABLE  LINE  IN  THE  WORLD,  CLAY  STREET  HILL  R.  R.— 1872. 
Also  Geary  Street  steam  dummy— 1880. 

— Courtesy  Gabriel  Moulin. 

1873.  Rate  war  between  the  City  Railroad,  Omnibus  Railroad, 
and  North  Beach  &  Mission  Railroad.  Fares  dropped 
to  eight  tickets  for  25  cents. 

1875.  Agreement  between  all  roads  excepting  the  Clay  Street 
Hill  line  fixing  fares  at  four  tickets  for  25  cents.  At 
this  time  the  dime  was  the  smallest  coin  in  circulation 
in  San  Francisco,  and  the  charge  for  a  single  fare  on  all 
roads  was  ten  cents. 

1875.  Eight  companies  in  operation,  having  80  miles  of  single 
track  and  220  cars;  700  men  and  1700  horses  employed. 

1876-     Sutter  Street  Railway  Company  changed  from  horse  to 
1880.      cable  power.     Extended  the  Sutter  Street  line  to  Pre- 
sidio and  built  Larkin  Street  line  from  Market  to  Sutter. 

1877.  Law  enacted  by  the  Legislature  (effective  1878)  fixing 
fares  in  San  Francisco  at  five  cents. 

1877.  Ocean  Beach  Railroad  Company  incorporated. 

1878.  California  Street  Cable  Railroad  Company,  incorporated 

1876,  put  line  into  operation  between  Kearny  and  Fill- 
more Streets.  Built  by  Leland  Stanford  and  associates, 
at  a  cost  of  $430,000.     Construction  first-class  through- 


out.   Equipment,  25  cars.    Grip  cars  or  dummies  seated 
18,  and  trailers  16  passengers. 

1879.  Franchise  extensions  of  50  years  granted  to  practically 

all  companies  just  prior  to  the  adoption  of  a  new  State 
constitution. 

1880.  Presidio  &  Ferries  Railroad  Company  started  operation 

over  a  line  approximating  the  present  route,  using  a 
combination  of  horse,  cable  and  steam  dummy  power. 
1880.  Geary  Street  cable  line  built  from  Kearny  to  Presidio 
Avenue;  Golden  Gate  Park  extension  via  Point  Lobos 
and  First  Avenues,  operated  as  a  steam  dummy  hne. 
Cost  $370,000.  Constructed  with  plank  conduit,  but 
later   reconstructed   to   standard   concrete   conduit   and 

steel  yokes. 
1882.  Market  Street  Cable  Railway  Company  formed  by  Stan- 
ford and  associates ;  took  over  all  lines  of  the  Market 
Street  Railroad  and  reconstructed  them  into  cable  lines. 
Capital,  $5,000,000.  Construction  of  roadbed  first-class, 
and  even  withstood  the  earthquake  of  1906,  except 
where  the  support  was  entirely  carried  away. 

1884.  Park  &  Ocean  Railroad  Company,  organized   1883,  put 

into  operation  as  a  steam  line  to  the  Beach. 
188"4.     Telegraph  Hill  Railroad  started  operation  of  a  cable  line 
up  Telegraph  Hill.     Operation  ceased  about  1886. 

1885.  Powell   Street   Railroad   system   built  from   Powell   and 

Market  to  Taylor  and  Bay  Streets,  and  from  the  Ferry 
to  Presidio  Avenue  via  Sacramento,  Clay,  Washington 
and  Jackson.  Later  the  Sacramento  Street  line  was  ex- 
tended from  Mason  to  Walnut  Street,  and  afterwards 
to  Golden  Gate  Park  via  Sixth  Avenue. 

1886.  Market   Street   &   Fairmount   Railroad   Company   incor- 

porated (a  subsidiary  of  the  Market  Street  Railway). 
Operation  commenced  in  1889.  Castro  Street  cable  line 
constructed. 
1886-  Expansion  of  cable  lines  on  Ellis  Street  from  Market  to 
1889.  Broderick,  via  Oak,  Stanyan  to  Haight;  on  Post,  Mar- 
ket to  Leavenworth,  Tenth  to  Howard ;  Howard  Street 
horse  car  line  converted  into  cable  to  Twenty-sixth 
Street,  and  line  built  on  Twenty-fourth  Street  east. 

Period  of  Electric  Construction  and  Consolidation— 1891 

1891.  San  Francisco  and  San  Mateo  Railroad  Company,  the  first 
electric  line  in  San  Francisco,  built  by  Mr.  Behrend 
Joost  from  the  corner  of  Steuart  and  Market  to  the 


INTENTIONAL  SECOND  EXPOSURE 


416 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


HISTORICAL  REVIEW 


417 


FIRST  CABLE   LINK   IX   TIIR  WOULD,   CLAY   STRF.ET  HILL   R.   R.— 187J. 
Also  Geary  Street  steam  dummy — 1880. 

— Courtesy  Gabriel  Moulin. 

1873.  Rate  war  between  the  City  Railroad,  Omnibus  Railroad, 
and  Xorlh  lieach  &  Alission  Railroad.  Fares  dropped 
to  ei^i^ht  tickets  for  25  cents. 

1875.  Agreement  between  all  roads  excepting  the  Clay  Street 
kill  line  fixing  fares  al  four  tickets  for  25  cents.  At 
this  time  the  dime  was  the  smallest  coin  in  circulation 
in  San  Francisco,  and  the  charge  for  a  single  fare  on  all 
roads  was  ten  cents. 

1875.  Eight  companies  in  oi)eration,  having  80  miles  of  single 
track  and  220  cars;  700  men  and  1700  horses  employed. 

1876-     Sutter  Street  Railway  Company  changed  from  horse  to 
1880.      cable  power.     Extended  the  Sutter  Street  line  to  Pre- 
sidio and  built  Larkin  Street  line  from  Market  to  Sutter. 

1877.  Law  enacted  by  the  Legislature  (effective  1878)  fixing 
fares  in  San  Francisco  at  five  cents. 

1877.  Ocean  Beach  Railroad  Company  incorporated. 

1878.  California  Street  Cable  Railroad  Company,  incorporated 

1876,  put  line  into  operation  between  Kearny  and  Fill- 
more Streets.  Built  by  Leland  Stanford  and  associates, 
at  a  cost  of  $430,000.     Construction  first-class  through- 


out.    Equipment,  25  cars.     Grip  cars  or  dummies  seated 
18,  and  trailers  16  passengers. 

1879.  Franchise  extensions  of  50  years  granted   to  practically 

all  companies  just  i)rior  to  the  adoption  of  a  new  State 
constitution. 

1880.  Presidio  &  1^'erries  Railroad  Company   started  operation 

over  a   line   api)roximating  the   present   route,   using  a 
combination  of  horse,  cable  and  steam  dummy  power. 

1880.  Geary  Street  cable  line  built  from  Kearny  to  Presidio 
Avenue;  (lolden  Gate  Park  extension  via  Point  Lobos 
and  First  Avenues,  operated  as  a  steam  dummy  line. 
Cost  $370,000.  Constructed  with  plank  conduit,  but 
later  reconstructed  to  standard  concrete  conduit  and 
steel  yokes. 

1882.  Market  Street  Cable  Railway  Company  formed  by  Stan- 
ford and  associates ;  took  over  all  lines  of  the  Market 
Street  Railroad  and  reconstructed  them  into  cable  lines. 
Capital,  $5,000,000.  Construction  c^f  roadbed  first-class, 
and  even  withstood  the  carthtpiake  of  1906,  except 
where  the  support  was  entirely  carried  away. 

1884.  Park  t^  Ocean  Railroad  Company,  organized  1883,  put 
into  operation  as  a  steam  line  to  the  Beach. 

1884.  Telegraph  Hill  Railroad  started  operation  of  a  cable  line 

up  Telegraph  Tlill.     Operation  ceased  about  1886. 

1885.  Powell    Street    Railroad    system    Imilt    from    Powell   and 

:\Iarket  to  Taylor  and  Bay  Streets,  and  from  the  Ferry 
to  Presidio  Avenue  via  Sacramento,  Clay,  Washington 
and  Jackson.  Later  the  Sacramento  Street  line  was  ex- 
tended from  Mason  to  Walnut  Street,  and  afterwards 
to  Golden  Gate  Park  via  Sixth  Avenue. 

1886.  Market    Street    &    Fairmount    Railroad    Company    incor- 

porated (a  subsidiary  of  the  Market  Street  Railway). 
Operation  commenced  in  1889.  Castro  Street  cable  line 
constructed. 
1886-  Expansion  of  cable  lines  on  Ellis  Street  from  Market  to 
1889.  Broderick,  via  Oak,  Stanyan  to  Haight;  on  Post,  Mar- 
ket to  Leavenworth,  Tenth  to  Howard;  Howard  Street 
horse  car  line  converted  into  cable  to  Twenty-sixth 
Street,  and  line  built  on  Twenty-fourth  Street  east. 

Period  of  Electric  Construction  and  Consolidation— 1891 

1891.  San  Francisco  and  San  :\rateo  Railroad  Company,  the  first 
electric  line  in  San  Francisco,  built  by  Mr.  Behrend 
Joost  from  the  corner  of  Steuart  and   Market  to  the 


1 4. 


B 


418  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

County  line,  via  Steuart,  Harrison,  Fourteenth,  Guerrero 
and  San  Jose  Avenue.  This  road  did  not  pay  expenses, 
and  failed  after  a  short  time,  but  was  afterwards  re- 
habilitated and  extended  to  the  Holy  Cross  Cemetery, 
and  over  the  present  Harrison  and  Eighteenth  Street 
'^switchback  line." 

1891.  Metropolitan  Railroad  built  from  Market  Street  to  Golden 

Gate  Park  via  Eddy,  Hyde,  O'Farrell,  Scott,  Fell,  Baker, 
Page,  Clayton  and  Waller  to  Ninth  and  "H"  Streets. 
This  road  was  purchased  by  the  Market  Street  Railway 
Company  in   1894. 

1892.  Southern  Heights  and  Visitacion  Valley  Railroad  Com- 

pany incorporated.  Operated  on  Kentucky  Street  and 
Railroad  Avenue. 

1892.  War  of  competition  between  the  Omnibus  Railroad  and 

the  Market  Street  cable  roads,  at  that  time  controlled  by 
Southern  Pacific  interests.  Both  extended  their  lines 
rapidly,  and  numerous  attempts  were  made  to  stop  con- 
struction by  armed  force.  There  were  several  fights 
over  attempted  extensions  south  of  the  Park.  During 
this  time  the  Omnibus  Company  put  15  to  20  cars  on 
the  Market  Street  outer  tracks  below  Kearny,  and 
blanketed  the  inner  tracks.  The  Omnibus  Company 
finally  forced  purchase  and  consolidation. 

1893.  Stock  of  the  Omnibus  Railroad  purchased  by  the  inter- 

ests controlling  the  Market  Street  road,  which  at  that 
time  had  obtained  control  of  practically  all  the  other 
lines  in  the  city. 

1893.  Market  Street  Railway  Company  organized  by  "Southern 
Pacific  interests"  consolidating  all  lines  with  the  excep- 
tion of  the  San  Mateo,  Sutter,  Geary,  California,  and 
Union  Street  lines.  This  was  the  first  large  consolida- 
tion of  competing  lines. 

1893-  Period  of  unification  of  the  Market  Street  Railway  sys- 
1901.  tem  during  which  old  routes  were  changed  to  a  consid- 
erable extent,  and  many  sections  of  track  abandoned. 
From  1896  to  1901,  the  extensions  on  all  of  the  systems 
just  about  equalled  the  abandonments. 

1895.  Adolph  Sutro  built  an  extension  from  the  end  of  the 
Sutter  Street  line  via  California  and  Clement  Streets 
to  the  Beach  in  order  to  secure  a  5-cent  fare  to  the  Sutro 
Baths,  which  was  refused  by  the  Market  Street  Com- 
pany. This  road  did  not  pay,  and  was  eventually  sold  to 
the  Sutter  Street  Railway  Company. 


°s|  li  i  i  i|i  !  :i;:il 

^<        t!ilHl«l*li 


|2 

"'  Nil 


FIGURE  103  -RAILWAYS  OPERATING  IN  SAN  FRANCISCO  IN  1893o. 
This  exhibit  is  of  particular  interest  as  indicating  conditions  prior  to  the  hrst 
general  con  oMation  of  railway  lines.  The  large  number  of  separate  companies 
f^era  i^g  at  Sat  time  is  shown  by  graphical  code;  also  the  -^'"f^'l^^JTZ  d 
lines  and  routes  some  of  which  have  since  been  abandoned.  The  advantages  to  De 
derived  from  *e  consolidation  in  obtaining  for  the  P"bhc  unified  operation  and  more 
direct  routine  and  for  the  Company,  the  elimination  of  duplication  of  service,  are 
here  qu™vident.  This  comfdexity  of  routing  and  duplication  of  investment  is 
most  noticeable  in  the  North  Beach  section. 


420 


1900. 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


HISTORICAL  REVIEW 


421 


lil 


\ 


San  Francisco  &  San  Mateo  system  purchased  by  the 
"Baltimore  Syndicate"  for  $1,200,000.    This  formed  the 
nucleus  of  the  present  United  Railroads  system. 
1900.     New  City  Charter  adopted,  declaring  for  gradual  acquisi- 
tion of  and  ultimate  municipal  ownership  of  public  utilities. 

1902.  United  Railroads  organized  by  Brown  Bros.,  New  York, 

consolidating  all  railroads  operating  in  San  Francisco 
with  the  exception  of  the  California  Street  Cable,  Pre- 
sidio &  Ferries,  and  the  Geary  Street  lines.  This  was 
the  second   and  last   important   consolidation. 

1903.  Charter  amendment  declaring  right  of  regulating  rates 

and  service. 
1906.     Earthquake  and  fire  temporarily  stopped  all  street  rail- 
(Apr.     way   communication   within  the  city.       United  Railroads 
18th)     provided  food  and  clothing  and  the  assistance  of  their 
trainmen  and  free  transportation  during  the  early  days 
of  greatest   distress.     Fillmore   Street   cross-town   line 
first  to  resume  operation,  and  traffic  practically  recov- 
ered in  seven  months  due  to  extraordinarily  rapid  re- 
building. 

1906.  First  carmen's  strike,  10  days. 
(Aug.) 

1906-07.  All  United  Railroads  cable  lines  were  electrified  ex- 
cepting Castro,  Powell,  and  Sacramento  cables. 

1907.  Strike  of  platform  men  practically  stopped  the  operation 
(May    of  the  United  Railroads  system,  but  finally  resulted  in 

5th)  a  victory  for  the  Company  after  a  prolonged  and  brutal 
struggle  in  which  armed  force  was  frequently  resorted 
to.  Traffic  did  not  fully  recover  for  about  one  year. 
This  turbulent  fire  and  strike  period  resulted  in  about 
$5,000,000  loss  in  United  Railroads  earnings  and  gave 
rise  to  further  punitive  legislation. 

1907.  Charter  amendment  providing  for  acquisition  of  public 
(Oct.)  utilities  by  City  and  extending  right  of  regulation. 

1910.  Charter  amendment  declaring  for  City  purchase  of  utilities, 
limiting  minimum  wages  and  maximum  hours  of  work  ex- 
cept for  City  employees. 

Municipal  Ownership 

1896.  Supervisors  attempted  to  extend  the  franchise  of  the 
Geary  Street  road.  Court  decided  that  Supervisors  had 
no  right  to  extend  a  franchise  prior  to  one  year  before 
its  expiration. 


1900.  New  City  Charter  went  into  effect  declaring  for  municipal 
acquisition  and  ownership  of  public  utilities. 

1902.  First  election  on  Municipal  Railway,  bond  issue  of  $700,- 

000  to  rebuild  the  Geary  Street  cable  road  with  an 
electric  conduit.  Failed  to  receive  the  necessary  two- 
thirds  majority.    Vote  about  15,000  to  10,000. 

1903.  Franchise  of  Geary  Street  road  expired.    Second  election 

of  Municipal  Railway  bond  issue.  Lost,  14,000  to 
10,000. 

1905-6.  Tax  levy  of  $700,000  provided  for  to  build  the  Geary 
Street  road.  This  money  was  diverted  to  other  pur- 
poses at  the  time  of  the  fire. 

1909.     Third  bond  election  for  Geary  Street  road  fell  431  short 

(June)  of  the  necessary  two-thirds  majority. 

1909.     Fourth  election.     Bond  issue  of  $2,120,000  for  the  con- 

(Dec.)  struction  of  a  municipal  system  passed  by  vote  of  28,000 
to  7,000. 

1911.  Rebuilding  of  the  Geary  Street  line  commenced.  Con- 
struction changed  from  day  labor  to  contract  basis  after 
election  of  new  administration. 

1911.  Judge  Seawell  ruled  in  favor  of  City's  right  to  operate 
(Sept.)    Geary  Street  line  to  the  Ferry  over  tracks  laid  by  the 

Sutter  Street  Railway  Company. 

1912.  State    Railroad    Commission,    reorganized    under    Public 
(Mch.)  Utilities  Act,  given  power  of  regulating  rates  and  ser- 
vice except  in  cities  then  holding  and  retaining  such 
powers. 

1912.     Administration  enters  into  agreement  with  United  Rail- 
(Dec.)  roads  respecting  joint  operation  on  lower  Market  Street. 

1912.  Charter  Amendment  34  defeated  by  small  majority.  This 
(Dec.)  was  a  broad  enabling  act  designed  to  permit  new  and 
resettlement  franchises  to  be  granted  on  the  indetermi- 
nate profit-sharing  plan,  with  automatic  recapture  by 
the  City  unlimited  extensions  and  adequate  service. 
Amendments  also  defeated  providing  for  City  Public 
Service  Commission  with  regulative  powers  over  util- 
ities and  for  exemption  of  revenue  producing  utilities 
from  the  existing  15%  debt  limit. 

1912.  Municipal  railroad  on  Geary  Street  commenced  operation. 
(Dec.) 

1913.  Geary  Street  extension  to  the  Ferry  delayed  by  petition 

for  referendum  on  legality  of  agreement. 


r 
t 


i'- 


4 


! 


422  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

SUPPLEMENTAL  DISCUSSION 
Suburban  Transportation 

Regular  Ferry  service  between  Oakland  and  San  Francisco 
was  started  in  1852  with  two  trips  daily,  increased  in  1858  to 
three     On  the  Oakland  side,  passengers  were  landed  at  the  foot 
of  Broadway  until  1863.  when  the  Oakland  pier  was  built.     By 
1873,  the  passengers  carried  numbered  2,655,671  ^^ich  had  in- 
creased by  1877  to  5,570,555,  and  by  1912  to  nearly  40,000,000. 
Originally,  the  single-trip  fare  was   15  cents,  and  the  monthly 
commuter  rate  $3.00,  the  same  as  at  the  present  time.     Ferries 
were  also  run  in  1877  to  Sausalito  and  to  Berkeley  making  about 
six  trips  daily,  the  same  rate  of  fare  being  charged.     In  1863  the 
San  Francisco  &  San  Jose  Railroad  was  built,  with  four  trains 
daily  run  from  Mission  Dolores  (Sixteenth  and  Dolores  Streets) 
to  San  Francisquito  Creek ;  later  trains  were  run  to  a  depot  at 
Market   and   Valencia,   and   occasionally   down    Market    Street 
landing  passengers  at  the  Palace  Hotel.    This  was  discontinued 
in  1867,  when  an  ordinance  was  passed  forbidding  operation  by 
steam  on  Market  Street. 

Fares 

On  the  original  omnibus  line,  the  fare  from  Kearny  Street  to 

Mission  Dolores  was  50  cents  on  week-days  and  $1 .00  on  Sundays : 

and  from  South  Park  to  North  Beach,  15  cents  one  way.    But  when 

the  opposition  omnibus  lines  were  started  the  fare  to  Mission  Dolores 

was  reduced  to  25  cents,  and  from  North  Beach  to  South  Park  to 

10  cents   which  ultimately  became  the  standard  omnibus  fare.     On 

the  first  horse  railroad  the  franchise  provided  for  a  5-cent  fare  when 

two  or  more  passengers  were  paid  for.  or  10  cents  for  a  single 

passenger,  since  10  cents  was  the  smallest  coin  in  circulation.     Ihe 

companies  finally  succeeded,  however,  in  raising  the  fare  to  four 

tickets  for  25  cents,  under  a  Court  decision  giving  them  permission 

to  add  the  amount  of  the  Federal  tax.    After  the  adoption  of  tickets 

the  companies  found  that  they    realized    considerable    additional 

revenue  due  to  tickets  lost  or  unused  by  passengers. 

The  high  construction  cost  of  the  Potrero  &  Bay  View  Company's 
line  was  recognized,  and  permission  granted  to  sell  tickets  3  for 
25  cents  and  to  charge  an  extra  fare  to  the  Bay  View  racecourse. 
About  1872  the  City  Railway  carrying  people  to  an  amusement 
resort  in  the  Mission  (Woodwards  Gardens)  cut  the  fare  to  six 
tickets  for  25  cents,  resulting  in  a  rate  war  with  the  Omnibus  and 
the  North  Beach  &  Mission  lines,  during  which  time  as  many  as 
eight  tickets  were  sold  for  25  cents.     In  1873  an  agreement  was 


HISTORICAL  REVIEW 


423 


BEGINNINGS    OF    TRANSPORTATION    IN    SAN    FRANCISCO— 1860. 
Omnibus,  corner  Clay  and  Montgomery  Streets. 

— Courtesy  Chas.  B.  Turrill. 

reached  and  fares  restored  to  five  tickets  for  25  cents.  But  two 
years  later  all  lines  except  the  Clay  Street  cable  raised  the  fare 
(without  notice  to  the  public)  to  four  tickets  for  25  cents.  This 
resulted  in  numerous  riots ;  the  fare  question  became  a  political  issue, 
and  finally  an  Act  of  the  Legislature  (effective  1878)  fixed  street 
railroad  fares  in  San  Francisco  at  5  cents.  The  effect  of  this  reduc- 
tion was  an  increase  in  riding  of  about  ten  per  cent.  For  a  time 
after  the  Market  Street  consolidation  the  transfer  system  was  not 
altered,  and  an  attempt  was  made  to  collect  additional  fares  on  many 
of  the  lines.  This  resulted  in  lawsuits  in  which  the  Company  was 
fined  $200  for  each  violation  of  the  State  law  of  1878.  Since  that 
time  a  uniform  5-cent  fare  has  been  charged  in  San  Francisco,  with 
universal  transfers  between  all  lines  under  one  control. 

Rolling  Stock 

The  first  equipment  used  for  transportation  in  San  Francisco 
was  the  omnibus,  with  two  or  four-horse  teams,  and  seating  about 
18  passengers  including  seats  on  top.  No  standing  passengers  were 
allowed. 

When  the  omnibuses  became  inadequate  to  serve  the  rapidly 
growing  population,   horse  cars   of  various   types   were  put   into 


i< 


s 


i  i 


I 


INTENTIONAL  SECOND  EXPOSURE 


422  SAN   FRANCISCO  TRANSPORTATION   FACILITIES 

Sl'lMMjail'-XTAK  DISC  rSSIOX 

Suburban  Transportation 

Rcirular    Iumtv   service  ])Ot\vccii   Oakland   and   San    l^^ancisco 
was  srartcd   in   1852   with   two  lri])s  daily,  increased   in    18rS  to 
three      On  the  (Oakland  side.  i)assen.ij:ers  were  landed  at  the  h'Ot 
,)f  r.rnadwav  nntil   18f)3.  when  the  Oakland  pier  was  bnilt       Wy 
187^    the  l)a>.^-enoers  carried   nnnd)ered  2.ro.^.f.71    which   had   in- 
creased l)v   1877  to  ?,?70,??y  and  hy   ^'12  to  nearly   40,000.()()0. 
Orio-inallv.   the   sinolc-trip   fare    was    1.^   cents,   and    the   innnthly 
conininter  rate  S.VOO.  the  same  as  at  the  present  tune,     kernes 
were  also  rnn  in   1877  to  Sausalito  and  to   IWrkeley  iii;il<i"g  f  ont 
MX  trills  dailv.  the  same  rate  of  fare  bein-  charjred.     In   18rK^  the 
San   k^ancisco  .K:  San    [ose  Railroad   wa<  bnilt.  with   tonr  trains 
dailv  run  from  Mission  Dol.>re<  (Sixteenth  and  Dolores  Street<) 
t(.  San   Franciscpiito  Creek:  later  trains  were  rnn  to  a  depot   at 
Market    and    X'alcncia.    and    occasionally    down    Market    Street 
kmdin-  passencrers  at  the  f^alace  Ib^tel.     This  was  discontinned 
in   1867,  when  an  ordinance  was  passed   fnrbiddin-  operation  by 
steam  on  Market  Street. 

Fares 

C^n  the  orii^nnal  omnibns  line,  the   fare  from  Kearny  Street  to 
Mission  Dolores  was  .=^0  cents  on  week-days  and  SI  .00  on  Sundays: 
and  from  South  l\irk  to  North  F.each.  1.=^  cents  one  wav.     Fut  when 
the  opposition  omnilms  lines  were  started  the  fare  to  Mission  Dolores 
wa.  reduced  to  2.=^  cents,  and  from  North   lU'acli  to  South   1  ark  to 
10  cents    which  ultimatelv  became  the  standard  omnibus  tare.     On 
the  first  hr>r<e  railroad  the  franchise  provided  for  a  .-cent  fare  when 
two  or  m<.re  passen-er^  were  paid   fnr.  or   10  cents   for  a   sin^  e 
nas'^eno-er    since  10  cents  was  the  smallest  coin  in  circulation.      I  he 
companies  finallv  succeeded,  however,  in   raisinpr  the  fare  to^  four 
tickets  for  2.^  cents,  under  a  Court  decision  -ivin-  them  permission 
to  add  the  amount  of  the  Federal  tax.     After  the  adoption  of  tickets 
the   companies    found    that   they     realized     considerable    additional 
revenue  due  to  tickets  lost  or  unused  by  passengers. 

The  hii^h  construction  cost  of  the  Fotrero  8:  Ray  View  Company  > 
line  was  reco-nized.  and  permission  -ranted  to  sell  tickets  3  for 
^=;  cents  and  to  cbar-e  an  extra  fare  to  the  F>ay  ViexV  racecourse. 
•\bout  187^  the  Citv  Rail  wav  carrvini::  people  to  an  amusement 
resort  in  the  Mission  (Woodward^  Gardens)  cut  the  fare  to  six 
tickets  for  2.-  cents,  resultinir  i"  a  rate  war  with  the  Onmibus  and 
the  North  F.each  &  Mission  lines,  durino:  which  time  as  many  as 
eicrht  tickets  were  sold  for  2?  cents.     In   187.S  an  a-reement  was 


.1 


HISTORICAL  REVIEW 


423 


-  ♦^ 


I'.KCINNIXCS    OF    TKAXSPORTATIOX     IX     SAX    FK  AXC ISCO-1860. 

Otnniluis,  corner  Clay  and  Mont^<Mncry  Streets. 

— Courtes3'  Chas.   B.  Turrill. 

reached  and  fares  restored  to  five  tickets  for  23  cents,  lint  two 
years  later  all  lines  except  the  Clay  Street  cable  raised  the  fare 
(without  notice  to  the  public)  to  four  tickets  for  25  cents.  This 
resulted  in  numerous  riots ;  the  fare  question  became  a  political  issue, 
and  finally  an  Act  of  the  Legislature  (effective  1878)  fixed  street 
railroad  fares  in  San  b^rancisco  at  .S  cents.  The  effect  of  this  reduc- 
tion was  an  increase  in  riding  of  about  ten  per  cent.  For  a  time 
after  the  Market  Street  consolidation  the  transfer  system  was  not 
altered,  and  an  attempt  was  made  to  collect  additional  fares  on  many 
of  the  lines.  This  resulted  in  lawsuits  in  which  the  Company  was 
fined  $200  for  each  violation  of  the  State  law  of  1878.  Since  that 
time  a  uniform  5-cent  fare  has  been  charged  in  San  Francisco,  with 
universal  transfers  between  all  lines  under  one  control. 

Rolling  Stock 

The  first  equipment  used  for  transportation  in  San  Francisco 
was  the  omnibus,  with  two  or  four-horse  teams,  and  seating  about 
18  passengers  including  seats  on  top.  No  standing  passengers  were 
allowed. 

When  the  omnibuses  became  inadeciuate  to  serve  the  rapidly 
growing   population,    horse   cars   of   various   types    were    put    into 


I 


i 


424  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


HISTORICAL  REVIEW 


425 


I ; 


TYPICAL   EQUIPMENT,   HORSE    CAR    PERIOD— 1860-1870. 

At  the  left— One-horse  "Bob-tail"  Car,  City  Railroad  Co. 

— Courtesy  Gabriel  Moulin. 

service     These  were  limited  by  ordinance  to  25  feet  in  length.     In 
1870  the   Market,   Omnibus,   and   North    Beach   &   Mission   lines 
used  a  two-horse  car,  seating  about  20  passengers  and  operated  by 
a    conductor    and    driver.       Most    of    the    other    lines    used    the 
*'bob-tail"  car,  or  the  "balloon"  car  having  a  seating  capacity  of 
about  14    the  latter  being  introduced  on  the  steep  Sutter  Street 
grades  on  account  of  its  lightness.    The  "balloon"  car  was  provided 
with  a  patented  device  by  which  the  car  body  could  be  turned  on 
its  truck,  thereby  eliminating  turntables  at  terminals.     These  cars, 
as  well  as  the  "bob-tail"  cars,  were  operated  by  a  driver  only,  with 
a  fare  box  at  the  forward  end.     The  City  Railway,  which  during 
the  horse-car  period  had  the  reputation  of  keeping  its  cars  better 
and  cleaner  than  any  other  line,  operated  a  one-horse  car  having  a 
capacity  of  14  seated  and  5  standing  passengers. 

Just  prior  to  the  introduction  of  the  horse  car,  the  street  railway 
cars  were  operated  with  a  small  steam  dummy.  The  use  of  this 
dummy  on  Market  Street  was  prohibited  by  ordinance  after  1868. 

During  the  early  years  of  cable  traction,  trailers  were  used, 
hauled  by  a  dummy  car  carrying  the  grip  and  brakes,  it  being 
thought  that  the  dummy  could  adapt  itself  to  sharp  changes  m 


STANDARD  MARKET  STREET  CABLE  CAR— 1906. 

— United   Railroads. 

grade  better  than  a  longer  and  heavier  car.  It  is  curious  evidence 
of  erratic  transit  development  in  San  Francisco  that  "trains"  of  this 
type  are  still  operated  on  Pacific  Avenue.  Originally  the  dummies 
were  intended  to  accommodate  only  the  gripmen,  but  later  were 
provided  with  seats.  The  dummies  weighed  from  2200  to  4800  lbs. 
each,  and  the  trailers  2000  to  4000  lbs.,  with  a  seating  capacity  of 
usually  about  16  for  the  trailers  and  18  for  the  dummy  car.  Cars 
operated  on  Clay  Street,  the  original  cable  line,  were  at  first  pro- 
vided with  clocks. 

The  Market  Street  Cable  Railroad  built  in  1883  a  new  car,  com- 
bining trailer  and  dummy.  These  composite  cars  weighed  about 
9,000  lbs.,  and  carried  one  grip  and  wheel  brakes  on  each  of  the  two 
trucks.  In  1893,  single-end  cars  of  the  combination  type — half  open, 
half  closed — weighing  about  11,000  lbs.  each,  were  built  for  this 
company,  at  a  cost  of  $2,000  each.  They  used  double  trucks,  22-inch 
wheels,  one  pair  of  track  brakes,  and  wheel  brakes,  the  forward  wheel 
brakes  operated  by  a  foot  lever,  and  rear  track  brake  by  a  hand 
lever;  these  could  only  be  used  with  turntables  or  loops,  and  were 
the  standard  cable  cars  on  the  most  important  lines  of  the  United 
Railroads  up  to  the  time  of  the  fire. 

After  1889  radical  changes  took  place.  The  California  Street 
Cable  Company  developed  a  car  35  feet  long,  weighing  11,200  lbs., 
and  seating  34  passengers.  It  had  double  trucks  with  22-inch  wheels. 
Both  wheel  and  track  brakes  were  provided,  but  the  lattei  was  the 
most  dependable  one,  using  shoes  of  Oregon  fir  20  inches  long, 
which  generally  lasted  about  two  weeks.     This  car  used  one  griv 


' 


INTENTIONAL  SECOND  EXPOSURE 


424 


SAN   FRANCISCO  TRANSPORTATION   FACILITIES 


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T\  I'K    \l.    Kijni'MK.N  1.    11<)U>K    (  AK     IT.IUon      18^,0-1870. 
\,    tin.   Kfi_()iu   linr-r   "ilob-tair*    Cav.   City    Railmrul    C«). 

C■ouI■tc^y  Gabriel    Moulin. 

service,  'nie^c  were  liniiUMl  ])y  ordinance  L'  2?  feet  in  len.j^nh.  In 
1S7()  llie  Market.  (  )innil)ns.  and  X-'rlh  i'.eaoh  cK:  Mission  lines 
used  a  two-horse  car.  seatin--  alx.nt  20  i)assen-ers  and  operated  by 
a  conductor  and  driver.  Most  of  the  other  lines  used  the 
"l)ol)-tair'  car,  or  the  "l)alloon"  car  havin-  a  seatin.i^  capacity  of 
alK)Ut  14.  the  latter  heini;-  introduced  on  tlie  stee])  Sutter  Street 
i^rades  ou  account  of  its  lii^htness.  The  "balloon"  car  was  provided 
with  a  |)atente(l  device  by  wdiich  the  car  body  could  be  turned  on 
its  truck,  thereby  eliminating  turntables  at  terminals.  These  cars, 
as  well  as  the  "bob-tail"  cars,  were  operated  by  a  driver  only,  with 
a  fare  box  at  the  forward  end.  The  City  Railway,  which  during 
the  horse-car  period  had  the  reputation  of  keeiHnjT  its  cars  better 
and  cleaner  than  any  other  line,  operated  a  one-horse  car  havinj^  a 
capacitv  of  14  seated  and  5  standinof  passengers. 

Just  ])rior  t.>  the  introduction  of  the  horse  car.  the  street  railway 
cars  were  o] -crated  with  a  small  steam  dummy.  The  use  of  this 
duinmv  on  Market  Street  was  prohibited  by  ordinance  after  1868. 

Durinq;  tlie  earlv  years  of  cable  traction,  trailers  were  used, 
hauleil  bv  a  dummy  car  carryin^^^  the  i^rip  and  brakes,  it  being- 
thou-ht  that   the  dummy   could   adapt   itself  to  sharp  chansres   in 


HISTORICAL  REVIEW 


425 


'..,'^-  .**J.1|^j|g^|fJ(i*B;|(^i«^(Ji|!iyipi^,7^jP)|j|^ 


STAXDAkI)   M  ARKKT  STUKICT  CAULK  (  AK  — I90r,. 

-    Uiiitci]    Uailroails. 


jLTrade  better  than  a  longer  and  heavier  car.  It  is  curious  evidence 
of  erratic  transit  development  in  San  bVancisco  that  "trains"  of  this 
type  are  still  operated  on  I\'icific  Avenue.  (  )riiLiinally  the  dummies 
were  intended  to  accommodate  only  the  i^ri'pmen.  but  later  were 
provided  with  scats.  The  dummies  weip^hed  from  2200  to  4800  lbs. 
each,  and  the  trailers  2(X)0  to  4000  lbs.,  with  a  seating:  capacity  of 
usually  about  16  for  the  trailers  and  18  for  the  dummy  car.  Cars 
operated  on  Clav  Street,  the  ori.ii'inal  cable  line,  were  at  first  pro- 
vided with  clocks. 

The  Market  Street  Cable  Railroad  built  in  188.^  a  new  car.  com- 
bining;- trailer  and  dummy.  These  composite  cars  weighed  about 
0.0(X)  lbs.,  and  carried  one  i;rip  and  wheel  l)rakes  on  each  of  the  two 
trucks.  Tn  18*)3,  sin-^le-end  cars  of  the  coml)ination  ty])e — half  open, 
half  closed — wei^hin;^-  about  1 1  .OfMl  ll)s.  each,  were  built  for  this 
com])anv,  at  a  cost  of  $2,000  each.  They  used  double  trucks.  22-inch 
wheels,  one  pair  of  track  brakes,  and  wheel  brakes,  the  forward  wheel 
brakes  operated  bv  a  foot  lever,  and  rear  track  brake  by  a  hand 
lever;  these  could  onlv  be  used  with  turntables  or  loops,  and  were 
the  standard  cable  cars  on  the  most  important  lines  of  the  Cnited 
Railroads  up  to  the  time  of  the  fire. 

After  1880  radical  chan_c:es  took  ])lace.  The  California  Street 
Cable  Company  develojied  a  car  35  feet  \on^,  weii^hinq-  11.200  lbs., 
and  seatinjLT  34  passeni^ers.  Tt  had  double  trucks  with  22-inch  wheels. 
l>oth  wheel  and  track  brakes  were  ])rovided.  but  the  lattei  wms  the 
most  dependable  one.  usint;-  shoes  of  C^reiion  fir  20  inches  loni^^ 
which  ocnerallv  lasted  about  two   weeks.     This  car  used  one  grin 


1' 

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ffiftli! 

It:    . 

426 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


only,  which  was  operated  by  levers  from  either  end,  interlinked. 
The  operation  of  the  double-end  car  eliminated  the  necessity  for 
the  expensive  and  cumbersome  turntables  formerly  necessary  to 
reverse  cars  at  the  end  of  the  line. 

The  dummy  and  trailer  type  was  used  on  many  of  the  cable 
lines  until  1889,  but  the  "California"  type  or  combination  closed- 
body  and  open-end  car  became  popular  soon  after  it  had  been 
developed  and  was  used  widely  in  San  Francisco  during  the  cable 
period. 

Until  the  electrification,  the  Presidio  &  Ferries  Railroad  retained 
the  old  system  of  dummy  and  trailer  cars,  the  "train"  being  45  feet 
in  length. 

The  original  Day  Street  Hill  cable  line  used  a  grip  mounted 
upon  fixed  standards  and  operated  by  hand  wheels  (photo  accom- 
panying). On  the  Sutter  Street  line,  the  grip  was  operated  by  a 
lever  and  the  cable  taken  at  the  side  instead  of  the  bottom  of  the  grip 
as  in  the  Clay  Street  cars.  The  cable  could  be  dropped  in  this  as 
well  as  in  most  of  the  later  types  by  moving  the  lever  to  its  extreme 
"open"  position.  On  the  California  Street  line,  the  side  grip  was 
also  used,  but  provision  made  for  dropping  the  cable  by  oflf-setting 
the  track  at  proper  points  instead  of  mechanically  casting  off  the 
cable  as  in  other  designs. 

The  Market  Street  cars  used  a  grip  quite  similar  to  the  Califor- 
nia Street  design.  Howard  Street  cable  cars  used  a  bottom  grip, 
which  was  closed  by  the  pressure  of  movable  rollers  upon  the  out- 
side of  pivoted  grip  jaws.  This  same  type  was  afterwards  adopted 
on  the  Hyde  Street  line  of  the  California  Street  Cable  Railway, 
and  is  also  now  used  on  the  Jackson  and  Sacramento  lines  of  the 
United  Railroads.  On  the  other  lines  of  the  United  Railroads,  the 
side  grip  similar  to  the  California  Street  design,  is  used. 

When  electric  traction  was  introduced  into  San  Francisco  by  the 
San  Francisco  &  San  Mateo  Railway,  the  cars  were  modeled  after 
the  "California"  type  cable  car,  i.  e.,  with  an  open  section  at  each 
end  having  longitudinal  seats  facing  outward.  The  cars  were  26 
feet  and  28  feet  long,  the  shorter  ones  being  single-truck,  equipped 
with  two  15  h.p.  motors,  and  the  longer  ones  double-truck  with 
two  25  h.p.  motors.  Track  and  wheel  brakes  were  installed  at  first, 
but  the  latter  were  finally  discarded. 

The  Metropolitan  Street  Railway  used  combination  cars  24  feet 
long,  some  having  one  and  some  two  open  ends.  At  first  the  body 
was  mounted  on  radial  trucks,  but  owing  to  insufficient  braking 
power  on  steep  hills,  four-wheel  trucks  were  substituted.  The 
electrical  equipment  comprised  two  25  h.p.  motors. 


HISTORICAL  REVIEW 


427 


EARLY  TYPE  OF  ELECTRIC  ROLLING  STOCK. 

San  Francisco  &  San  Mateo  Electric  Ry.  Co. 

— ^United  Railroads. 

There  was  no  material  change  in  the  type  of  rolling  stock  until 
1905.  Power  and  seating  capacity  were  increased,  but  the  original 
"California"  type  was  not  departed  from.  In  1905  the  United 
Railroads  introduced  the  cars  of  the  present  1300  class,  much  larger 
and  heavier  than  those  previously  used.  These  are  of  the  "com- 
bination" type,  seating  42  passengers,  but  having  cross  seats  in  the 
open  sections.  The  first  departure  from  the  open  "California"  type 
came  in  1906-7,  when  the  heavy  all-closed  "box  cars"  of  the  1500  and 
1550  classes  were  introduced.  Then  came  the  prepayment  "box  cars" 
of  the  100  class.  The  present  tendency  is  to  return  to  an  improved 
"California"  type,  such  as  the  Geary  Street  or  the  United  Railroads 
cars  on  order. 

Franchises 

Until  1870  all  franchises  for  street  railways  were  granted  by  the 
State  Legislature.  In  the  first  Market  Street  grant  the  Company 
was  required  to  grade  and  repair  the  street.  Speed  was  limited  to 
eight  miles  per  hour.  Other  grants  made  during  the  sixties  generally 
contained  the  following  provisions : 

Payment  of  an  annual  car  license  fee  of  $50  per  car. 

Fare  limited  to  634  cents. 


INTENTIONAL  SECOND  EXPOSURE 


426 


SAN   FRANCISCO  TRANSPORTATION   FACILITIES 


onlv,  which  was  operated  Iw  levcM's  from  either  end,  intcrh'nkcd. 
M1ie  operation  of  tlie  donhle-end  car  chminated  tlie  necessity  for 
the  expensive  and  cunihersome  tnrntahles  formerly  necessary  to 
reverse  cars  at  the  end  of  the  hne. 

The  (hmimy  and  trailer  type  was  nsed  on  many  of  the  cahle 
lines  until  1880,  hut  the  "California"  type  or  comhination  closed- 
body  and  open-end  car  became  popular  soon  after  it  had  been 
developed  and  was  used  widely  in  San  I'rancisco  durini^  the  cable 
])eriod. 

I'ntil  the  electrification,  the  Presidio  8c  I'erries  Railn^ad  retained 
the  old  system  of  dummy  and  trailer  cars,  the  "train"  beinj^  45  feet 
in  Icno^th. 

The  orii^inal  Clay  Street  Tfill  cable  line  used  a  c^rip  mounted 
upon  fixed  standards  and  operated  by  hand  wheels  (]ihoto  accom- 
panying-V  On  the  Sutter  Street  line,  the  p:rip  was  operated  by  a 
lever  and  the  cable  taken  at  the  side  instead  of  the  bottom  of  the  ijrip 
as  in  the  Clav  Street  cars.  The  cable  could  be  dropped  in  this  as 
well  as  in  most  of  the  later  types  by  mcn-in":  the  lever  to  its  extreme 
"open"  position.  On  the  California  Street  line,  the  side  o;rip  was 
also  used,  but  provision  made  for  droppiui^  the  cable  by  off-settinjo: 
the  track  at  proper  points  instead  of  mechanically  castinj^^  off  the 
cable  as  in  other  desijc^ns. 

The  ^Market  Street  cars  used  a  o^rip  quite  similar  to  the  Califor- 
nia Street  desic^n.  Howard  Street  cable  cars  used  a  bottom  .c^rip. 
which  was  closed  by  the  pressure  of  movable  rollers  upon  the  out- 
side of  pivoted  j2:rip  jaws.  This  same  type  was  afterwards  adopted 
on  the  Hvde  Street  line  of  the  California  Street  Cable  Railway, 
and  is  also  now  used  on  the  Jackson  and  Sacramento  lines  of  the 
United  Railroads.  On  the  other  lines  of  the  United  Railroads,  the 
side  p^rip  similar  to  the  California  Street  desic^n,  is  used. 

When  electric  traction  was  introduced  into  San  Francisco  by  the 
San  Francisco  &  San  !Mateo  Railway,  the  cars  were  modeled  after 
the  "California"  type  cable  car.  i.  c,  with  an  open  section  at  each 
end  havins]f  lonp^itudinal  seats  facinc:  outward.  The  cars  were  26 
feet  and  28  feet  loner,  the  shorter  ones  beincr  sinc^le-truck,  equipped 
with  two  15  h.p.  motors,  and  the  lonj^er  ones  double-truck  with 
two  2^  h.p.  motors.  Track  and  wheel  brakes  were  installed  at  first, 
but  the  latter  were  finally  discarded. 

The  Metropolitan  Street  Railway  used  combination  cars  24  feet 
loner,  some  havincf  <^ue  and  some  two  open  ends.  At  first  the  body 
was  moimtcd  on  radial  trucks,  but  owinj^  to  insufficient  brakin^: 
power  on  steep  hills,  four-wheel  trucks  were  substituted.  The 
electrical  equipment  comprised  two  25  h.p.  motors. 


HISTORICAL  REVIEW 


427 


KAULV  TYTK  OF  KLl-XTRK  ROF.LIXr.  STOCK. 

San  I'rancisco  &  San  Mateo  I'llcctric  Ry.  Co. 

— United    Railroads. 

There  was  no  material  change  in  the  type  of  rolling  stock  until 
1905.  Power  and  seating  capacity  were  increased,  but  the  original 
"California"  type  was  not  dei)arted  from.  In  1905  the  I'nited 
Railroads  introduced  the  cars  of  the  present  1300  class,  much  larger 
and  heavier  than  those  i)reviously  used.  These  are  of  the  "com- 
bination" type,  sealing  42  passengers,  but  having  cross  seats  in  the 
open  sections.  The  first  de])arture  from  the  oi)en  "California"  type 
came  in  V)0C)-7 ,  when  the  heavy  all-closed  "box  cars"  of  the  1500  and 
1530  classes  were  introduced.  Then  came  the  prejiayment  "box  cars" 
of  the  100  class.  The  present  tendency  is  to  return  to  an  improved 
"California"  type,  such  as  the  Geary  Street  or  the  United  Railroads 
cars  on  order. 

Franchises 

Cntil  lcS70  all  franchises  for  street  railways  were  granted  by  the 
State  Legislature.  In  the  first  Market  Street  grant  the  Company 
was  required  to  grade  and  repair  the  street.  S])eed  was  limited  to 
eight  miles  per  hour.  Other  grants  made  during  the  sixties  generally 
contained  the  following  provisions : 

Payment  of  an  annual  car  license  fee  of  $50  per  car. 
Fare  limited  to  6 '4  cents. 


I 


I 


= 


i 


428 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


City  given  power  to  reduce  fares,  but  Company  must  not  be 
deprived  of  a  return  of  *'24%  per  annum  in  net  receipts  on  the  cap- 
ital actually  paid  in." 

City  given  privilege  to  take  over  road  any  time  within  ten  years 
at  actual  cost  plus  interest  at  ten  per  cent,  but  prohibited  from  trans- 
ferring purchase  privileges  to  other  parties. 

An  Act  of  the  Legislature  in  1870  gave  to  cities  power  to  grant 
franchises  to  horse  railways  for  periods  of  25  years.  During  the 
early  seventies  franchises  were  much  the  same  as  former  grants, 
except  that  the  m-aximum  fare  was  fixed  at  ten  cents. 

In  1879,  just  prior  to  the  adoption  of  a  new  State  Constitution, 
practically  all  companies  had  their  franchises  extended  for  50  years 
from  that  date.  These  grants  are  those  expiring  in  1929,  as  shown 
in  Plate  22. 

From  1879  to  1900,  franchises  which  were  granted  in  accordance 
with  general  laws  of  the  State  usually  provided  for :  Term  of  grant, 
50  years;  rate  of  fare,  five  cents;  rate  of  speed,  eight  miles  per 
hour ;  car  license,  $50  per  car  per  year. 

In  1900  a  new  City  Charter  was  adopted  which  declared  for 
ultimate  municipal  ownership  and  forbade  the  granting  of  exclusive 
franchises.  Including  the  amendments  of  1902,  the  general  fran- 
chise requirements  provided  for:  Term  of  grant,  25  years;  City 
regulation  of  service,  rates  and  operation ;  City  to  receive  from 
three  to  five  per  cent  of  the  gross  receipts ;  fixed  property  in  the 
streets  to  revert  to  the  City  at  the  expiration  of  the  franchise. 
Further  amendment  in  1907  extended  the  City's  right  of  regulation 
over  utilities  and  provided  for  their  acquisition.  By  the  amendments 
of  1910,  franchises  could  be  granted  subject  to  the  City's  right  to 
purchase  at  a  fair  value;  minimum  wages  for  employees  were  fixed 
at  $3.00  per  day  of  eight  hours,  all  work  to  be  completed  within 
ten  hours  except  in  the  case  of  City  employees,  upon  whom  no  time 
limit  was  set;  overtime  2X^/2  times  the  regular  rate;  failure  to 
comply  with  any  franchise  conditions  to  work  an  immediate  for- 
feiture without  any  power  of  the  Board  of  Supervisors  to  relieve 
therefrom. 

Financinfi^ 

The  first  transportation  systems — omnibus  lines — were  oper- 
ated by  individuals,  and  were  not  incorporated.  The  first  incor- 
porated company — the  Market  Street  Railroad  Company — as 
well  as  the  companies  formed  later,  from  1860-1880,  issued  stock 
only,  which  was  assessed  to  cover  the  cost  of  construction  of  the 
read.  Many  of  the  early  extensions  were  paid  for  out  of  earn- 
ings.    The  Market  Street  Cable  Railway  Company  was  the  first 


HISTORICAL  REVIEW 


429 


to  issue  bonds  in  addition  to  stock,  and  in  1883  the  trust  deed 
showed  an  issue  of  $3,000,000  (as  well  as  $3,000,000  in  stock) 
upon  an  investment  in  physical  property  of  $1,600,000  as  testified 
to  by  the  president  of  the  company.  This  caused  considerable 
difficulty  in  selling  the  bonds.  A  sinking  fund  of  $40,000  per  year 
was  provided,  but  the  promoters  evidently  intended  to  ultimately 
refund  the  bonds  since  the  accrued  sinking  fund  in  20  years 
would  fall   far  short  of  the  amount   necessary   for   redemption. 

In  1893,  the  stock  of  the  consolidating  companies  was  taken  over 
by  the  Market  Street  Railway  Company,  and  its  stock  to  the 
amount  of  $18,600,000  issued.  This  stock,  which  had  originally 
sold  for  $25  per  share  in  1893,  was  later  purchased  by  the  ''Balti- 
more Syndicate"  at  about  par. 

According  to  an  official  statement  of  the  president  of  the  new 
Company — ^$26,375,000  was  paid  ''in  cash  for  these  properties  sub- 
ject to  two  or  three  bonded  indebtednesses."  At  the  time  of  the 
formation  of  the  United  Railroads  in  1902,  the  total  outstanding 
bonds  of  all  underlying  companies  amounted  to  $13,091,000.  Imme- 
diately upon  the  formation  of  the  United  Railroads  securities  were 
issued  to  the  amount  of  $60,000,000  with  an  authorized  capitaliza- 
tion of  $75,275,000  excluding  the  underlying  debt  assumed. 

About  the  time  of  the  Market  Street  consolidation,  the  Geary 
Street  Railroad  issued  bonds  for  $671,000,  due  in  1929,  although 
its  franchise  expired  in  1903.  No  sinking  fund  payments  were  re- 
quired by  the  trust  deed  until  1911 — 8  years  after  the  expiration  of 
the  franchise. 


CHARTER  AMENDMENT  34 


431 


n' 


.1  • 


!'i 


FULL  TEXT  OF  CHARTER  AMENDMENT 

No.  34 

Adopted  by  Board  of  Supervisors  November  7,  1912 

Describing  and  setting  forth  a  proposal  to  the  qualified  electors 
of  the  City  and  County  of  San  Francisco,  State  of  California,  to 
amend  the  Charter  of  said  City  and  County  by  amending  Section 
12  of  Chapter  1  and  Sections  5,  6,  and  7  of  Chapter  2  of  Article  2 
thereof  and  by  repealing  Sections  7a,  7b  and  7c  of  Chapter  2  of 
Article  3  thereof,  relating  to  the  granting  of  franchises  for  street 
railways  and  other  public  utilities,  and  providing  for  the  surrender 
and  resettlement  of  franchises  and  rights  now  held  by  persons, 
companies  or  corporations  operating  street  railways  or  other  public 
utilities  within  the  limits  of  said  City  and  County. 

The  Board  of  Supervisors  of  the  City  and  County  of  San  Fran- 
cisco hereby  submits  to  the  qualified  electors  of  said  City  and 
County  at  a  special  election  to  be  held  on  the  tenth  day  of  Decem- 
ber, 1912,  a  proposal  to  amend  Article  2  and  Article  3  of  said 
Charter  as  follows : 

That  Section  12  of  Chapter  I  of  Article  II  be  amended  to  read 
as  follov/s: 

Section  12.  When  a  bill  is  put  upon  its  final  passage  in  the 
Board  and  fails  to  pass,  and  a  motion  is  made  to  reconsider,  the 
vote  upon  such  motion  shall  not  be  acted  upon  before  the  expira- 
tion of  twenty-four  hours  after  adjournment.  No  bill  for  the 
grant  of  any  franchise  shall  be  put  upon  its  final  passage  within 
thirty  days  after  its  introduction,  and  no  franchise  shall  be  renewed 
before  one  year  prior  to  its  expiration,  except  as  otherwise  provided 
in  Section  7  of  Chapter  II  of  this  Article.  Every  ordinance  shall, 
after  amendment,  be  laid  over  one  week  before  its  final  passage. 

That  Section  5  of  Chapter  II  of  Article  II  be  amended  to  read 
as  follows: 

Section  5.  No  exclusive  franchise  or  privilege  for  the  construc- 
tion or  operation  of  any  public  utility  shall  ever  be  granted  unless 
said  franchise  shall  provide  for  the  extension  of  such  utility  as 
public  need  requires  and  for  the  purchase  of  such  franchise  and 
the  property  of  such  utility  at  the  option  of  the  City  and  County 
of  San  Francisco,  as  provided  in  Sections  6  and  7  of  this  Chapter. 

NEW  FRANCHISES 

That  Section  6  of  Chapter  II  of  Article  II  be  amended  to  read 
as  follows: 


Section  6.  The  Board  of  Supervisors  shall  have  power,  subject 
to  the  referendum  as  elsewhere  provided  in  this  Charter,  and  sub- 
ject to  the  terms  of  a  general  ordinance  hereinafter  provided  for 
and  to  be  passed  by  the  Board  of  Supervisors  and  ratified  by  the 
people,  to  grant  franchises  for  the  construction,  maintenance  and 
operation  of  street  railways,  gas  works,  electric  works,  water  works, 
telephone  systems  and  other  public  utilities  upon,  or  over,  or  under, 
or  across  the  streets  and  public  places  of  the  City  and  County  of 
San  Francisco  upon  the  folowing  conditions  and  in  the  following 
manner : 

1.  No  franchise  shall  be  granted  for  a  street  railway  upon  any 
Street  or  part  of  a  street  reserved  for  a  boulevard,  except  for  the 
purpose  of  crossing  the  same. 

2.  No  franchise  granted  under  the  authority  of  this  section 
shall  run  for  a  period  longer  than  twenty-five  (25)  years,  except 
that  if  at  the  expiration  of  the  original  period  of  the  grant  the 
investment  under  such  franchise  shall  not  have  been  fully  amort- 
ized and  the  City  shall  not  exercise  its  option  to  purchase  th« 
property,  the  grantee  shall  be  entitled  to  a  renewal  or  renewals 
not  exceeding  in  the  aggregate  fifteen  (15)  years.  Every  fran- 
chise so  granted  shall  be  subject  to  the  right  of  the  City  and  County 
to  recall  such  franchise  prior  to  the  termination  thereof  or  of  any 
renewal  thereof  upon  purchasing  or  finding  a  purchaser  for  such 
franchise  and  the  property  constructed  or  used  in  connection  there- 
with upon  terms  and  in  a  manner  calculated  to  render  the  legiti- 
mate and  judicious  investment  of  private  capital  under  such  fran- 
chise safe  and  remunerative,  such  terms  and  manner  to  be  pre- 
scribed by  a  general  ordinance  hereafter  to  be  passed  by  the  Board 
of  Supervisors  and  ratified  by  the  people  of  the  City  and  County 
of  San  Francisco.  Such  franchise  may  also  provide  that  at  the 
expiration  thereof,  the  City  and  County  shall  purchase  or  find  a 
purchaser  for  the  property  constructed  or  used  in  connection  there- 
with, upon  terms  and  conditions  to  be  prescribed  in  such  franchise 
or  by  such  general  ordinance  referred  to  in  the  last  preceding  sen- 
tence and  as  may  be  in  force  and  effect  at  the  time  of  the  granting 
of  such  franchise.  In  case  any  franchise  hereafter  granted  by  the 
City  and  County  is  recalled  prior  to  its  expiration,  the  price  to  be 
paid  therefor  in  addition  to  the  price  of  the  property  constructed 
or  used  thereunder  is  hereby  fixed  at  the  sum  of  one  dollar,  but 
this  shall  not  be  construed  as  forbidding  the  City  and  County  to 
pay  a  bonus  on  account  of  the  cost  of  developing  the  business  or 
on  account  of  operating  deficits  incurred  within  ten  (10)  years  sub- 
sequent to  the  commencement  of  operation  of  any  such  utility  and 
not  made  up,  in  addition  to  a  fair  return  upon  investment,  prior 


432 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CHARTER  AMENDMENT  34 


433 


r. 


i 


I     i 


to  the  recall  of  such  franchise.  But  in  case  the  property  of  any 
utility  is  not  purchased  until  the  expiration  of  such  franchise,  noth- 
ing whatever  shall  be  paid  for  such  franchise  or  as  such  bonus. 
Provision  shall  be  made  in  such  franchise,  or  in  such  general  ordi- 
nance above  referred  to,  for  the  amortization  out  of  earnings  of 
all  or  a  part  of  the  purchase  price  of  the  property  prior  to  the 
expiration  of  the  franchise,  and,  except  for  the  bonus  above  men- 
tioned, the  entire  price  to  be  paid  for  the  property  when  acquired 
by  the  City  shall  not  exceed  the  fair  value,  at  the  time  of  such 
purchase,  of  the  tangible  property  so  acquired  less  the  amount 
amortized  at  the  time  of  such  purchase. 

3.  A  franchise  may  be  granted  under  this  section  either  upon 
application  to  the  Board  of  Supervisors  or  upon  proceedings 
initiated  by  resolution  of  said  Board  declaring  that  public  con- 
venience and  necessity  require  the  grant  of  such  franchise. 

4.  Upon  application  being  made  to  the  Board  for  any  such 
franchise,  it  shall  by  resolution  determine  whether  such  franchise 
or  any  part  thereof  should  be  granted,  and  at  said  time  shall  deter- 
mine on  what  conditions  the  same  shall  be  granted  additional  to 
the  conditions  expressly  provided  in  this  Charter  or  in  any  general 
ordinances  then  in  force  relative  to  such  matters.  After  such  de- 
termination, it  shall  cause  notice  of  such  application  and  resolution 
to  be  advertised  in  the  official  newspaper  of  the  City  and  County 
for  ten  (10)  consecutive  days.  Such  advertisement  must  be  com- 
pleted not  less  than  twenty  (20)  nor  more  than  thirty  (30)  days 
before  any  further  action  is  taken  by  the  Board  on  such  applica- 
tion. The  advertisement  must  state  the  character  of  the  franchise 
sought,  the  term  of  its  proposed  continuance,  and  the  route  to  be 
traversed  or  the  district  to  be  served  by  such  utility,  as  the  case 
may  be ;  that  sealed  bids  will  be  received  up  to  a  certain  hour  on  a 
day  to  be  named  in  the  advertisement ;  and  a  further  statement 
that  no  bids  will  be  received  of  a  stated  amount,  but  that  all  bids 
must  be  for  the  payment  to  the  City  and  County  in  lawful  money 
of  the  United  States  of  a  stated  percentage  of  the  gross  annual  re- 
ceipts of  the  person,  company  or  corporation  to  whom  the  franchise 
may  be  awarded,  arising  from  its  use,  operation,  enjoyment  or  pos- 
session ;  provided  that  all  costs  of  printing,  publication  and  ad- 
vertising shall  be  borne  by  the  applicant  or  applicants. 

Every  bidder  shall  file  with  his  bid  a  bond  executed  to  the  City 
and  County,  with  at  least  two  good  and  sufficient  sureties,  to  be 
approved  by  the  Mayor,  in  a  penal  sum  prescribed  by  the  Super- 
visors, and  set  forth  in  such  advertisement,  conditioned  that  such 
bidder  will  accept  such  franchise  if  awarded  to  him  and  will  well 
and  truly  observe,  fulfill  and  perform  each  and  all  of  the  condi- 


tions, terms  and  obligations  of  the  franchise  for  which  said  appli- 
cation was  made  in  case  the  same  shall  be  awarded  to  him,  and  that 
in  case  of  the  breach  of  any  of  the  conditions  of  such  bond,  the 
whole  amount  of  the  penal  sum  therein  named  shall  be  taken  to  be 
liquidated  damages,  and  that  as  such,  shall  be  recoverable  from  the 
principal  and  surety  on  such  bond. 

At  the  next  regular  session  after  the  expiration  of  the  time 
stated  in  such  advertisement  up  to  which  such  bids  will  be  re- 
ceived, the  Board  shall  open  such  bids,  and  shall  take  into  con- 
sideration the  award  of  such  franchise.  The  Board  may  reject  any 
and  all  bids,  and  may  refuse  to  grant  the  franchise  applied  for  or 
any  part  thereof.  If  the  Board  decides  to  grant  the  franchise, 
it  shall,  within  ten  (10)  days  after  the  opening  of  such  bids,  award 
the  franchise  to  the  highest  bidder  and  introduce  an  ordinance 
making  such  grant.  At  least  thirty  (30)  days  shall  intervene  be- 
tween the  introduction  and  the  final  passage  of  such  ordinance,  and 
such  ordinance  shall  require  upon  final  passage  the  concurrence 
of  three-fourths  of  the  members  of  the  Board  and  the  approval  of 
the  Mayor;  provided,  that  if  the  Mayor  fails  or  refuses  to  approve 
such  ordinance  within  the  time  allowed  for  his  approval  or  veto  of 
ordinances  and  resolutions  under  the  provisions  of  this  Charter, 
such  grant  may  be  repassed  by  a  concurrent  vote  of  five-sixths  of 
the  members  of  the  Board,  and  shall  thereupon  become  effective 
as  if  the  Mayor  had  signed  it,  subject  only  to  the  provisions  con- 
tained elsewhere    in  this  Charter  relating  to  the  referendum. 

Except  as  in  this  section  otherwise  provided,  bidding  for  a 
franchise  shall  be  in  accordance  with  the  provisions  of  this  Charter 
in  relation  to  bids  made  to  the  Board  of  Public  Works,  or  such 
official  or  body  then  performing  the  duties  now  performed  by  said 
Board,  so  far  as  such  provisions  may  be  applicable.  If  any  bid 
be  accepted,  the  franchise  must  be  granted  upon  the  express  condi- 
tion that  such  franchise  shall  be  exercised  subject  to  all  the  provi- 
sions of  the  Constitution  of  the  State  of  California  and  of  this 
Charter  and  of  any  general  ordinances  then  in  force  in  the  City 
and  County  of  San  Francisco  relative  to  such  franchises  or  opera- 
tion thereunder ;  and  further  upon  the  express  condition  that  the 
percentum  of  the  gross  receipts  of  such  utility  payable  to  the  City 
and  County  shall  be  paid  into  the  Municipal  Treasury  on  or  before 
the  twentieth  (20th)  day  of  the  next  ensuing  month  after  such 
gross  receipts  shall  have  been  earned.  At  the  time  such  percentages 
are  due  the  grantee  shall  file  with  the  Clerk  of  the  Board  of  Super- 
visors a  sworn  statement  in  general  detail  of  the  gross  receipts 
upon  which  such  percentages  are  payable,  and  in  addition  to  all 
other  powers  of  examination  of  public  utility  accounts  elsewhere 


434 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CHARTER  AMENDMENT  34 


435 


I  •! 


w  V  i 


I 


i 
I 


in  this  Charter  conferred  upon  the  City  and  County  or  any  de- 
partment or  officer  thereof,  the  Board  of  Supervisors  shall  have 
authority,  by  its  Finance  Committee  or  other  designated  agent, 
to  examine  the  accounts  of  such  grantee  for  the  purpose  of  verify- 
ing such  statements  of  gross  receipts.  Any  substantial  failure  on 
the  part  of  the  grantee  of  any  franchise  granted  under  this  Char- 
ter, not  due  to  causes  beyond  his  control,  or  any  refusal  of  such 
grantee  to  comply  with  the  conditions  of  such  franchise  shall  work 
an  immediate  forfeiture  of  the  grant,  and  of  all  fixed  property  con- 
structed or  acquired  thereunder  in  the  streets  or  public  places  of 
the  City  and  County  of  San  Francisco. 

5.  In  case  the  proceedings  for  the  grant  of  any  franchise  are 
initiated  by  resolution  of  the  Board  of  Supervisors  rather  than  by 
an  application  for  such  franchise  the  procedure  to  be  followed  in 
making  such  grant  shall  be  the  same  as  above  provided  in  Subdivi- 
sion 4  of  this  section,  so  far  as  such  procedure  can  be  applied 
thereto. 

6.  In  granting  any  franchise  under  this  section  the  Board  of 
Supervisors  shall  stipulate  as  a  condition  of  such  grant  that  eight 
hours  shall  be  the  maximum  hours  of  labor  in  any  calendar  day 
for  the  employees  of  the  grantee  or  its  successors  engaged  in  the 
construction,  maintenance  and  operation  of  the  utility  covered  by 
such  grant;  provided  that  such  eight  (8)  hours'  work  shall  be 
completed  within  ten  (10)  hours  except  in  the  case  of  the  operat- 
ing force  of  any  street  railway,  in  which  case  the  working  day 
shall  be  completed  within  thirteen  (13)  hours;  and  provided 
further,  that  nothing  in  this  section  shall  be  construed  to  prohibit 
overtime  employment,*  wages  for  such  overtime  to  be  paid  at  one 
and  one-half  times  the  regular  rate  of  wages  proportionate  to  each 
hour  of  such  extra  service. 

7.  The  Board  of  Supervisors  shall  prescribe,  in  any  ordinance 
for  the  grant  of  a  franchise,  the  security  to  be  exacted  for  the  per- 
formance of  the  conditions  of  such  franchise  and  the  penalties  for 
a  breach  thereof. 

8.  No  franchise  granted  hereunder  shall  become  effective  as 
against  the  City  and  County  until  the  same  has  been  accepted  in 
writing  by  the  grantee  thereof. 

9.  No  franchise  hereafter  granted  by  the  City  and  County  of 
San  Francisco,  and  no  fixed  property  constructed  or  acquired  there- 
under in  the  streets  or  public  places  of  said  City  and  County,  shall 
be  assigned,  leased,  alienated  or  transferred  in  any  manner  what- 
soever by  the  grantee  thereof,  his  successors  or  assigns,  except  by 
mortgage  or  deed  of  trust  duly  executed  in  accordance  with  the 
laws  of  the  State  of  California,  unless  such  assignment,  lease,  alien- 

*The  remainder  of  this  sentence  may  be  omitted,  if  desired,  in  case  Amendment   34  is 
resubmitted  for  referendum. — (B.  J.   A.) 


ation  or  transfer  shall  have  been  consented  to  by  ordinance,  and 
the  passage  of  any  such  ordinance  shall  be  governed  by  the  same 
procedure  and  shall  require  the  same  approval  as  the  ordinance 
originally  granting  such  franchise.  Any  violations  of  the  provisions 
of  this  paragraph  shall  result  in  the  immediate  forfeiture  to  the 
City  and  County  of  such  franchise  and  property. 

RESETTLEMENT  OR  ADJUSTMENT  FRANCHISES 

That  Section  7  of  Chapter  II  of  Article  II  be  amended  to  read 
as  follows : 

Section  7.  In  order  to  further  the  established  policy  of  the 
City  and  County  of  San  Francisco  gradually  to  acquire  and  ulti- 
mately to  own  its  public  utilities,  the  Board  of  Supervisors  may 
negotiate  a  general  resettlement  of  the  franchise  rights  and  ob- 
ligations of  any  person,  company  or  corporation  actually  operat- 
ing a  public  utility  in  said  City  and  County  at  the  time  this 
amendment  becomes  effective,  upon  the  following  terms  and  con- 
ditions : 

1.  Any  such  resettlement  franchise  shall  provide  for  the 
surrender  by  the  grantee  thereof  of  all  franchises  or  rig'hts 
claimed  by  such  grantee  for  the  occupation  of  the  streets  or 
public  places  of  said  City  and  County  at  the  time  of  such  resettle- 
ment, and  the  acceptance,  in  lieu  of  such  franchises  and  rights  so 
surrendered,  of  the  rights  and  privileges  granted  by  such  resettle- 
ment franchise  as  the  sole  franchise  for  the  continued  operation 
of  such  utility  within  the  limits  of  said  City  and  County. 

2.  Any  such  resettlement  franchise  shall  provide  that  the 
City  and  County  may  at  any  time  on  six  (6)  months'  notice 
purchase  such  franchise  and  the  property,  real  and  personal, 
actually  used  and  useful  and,  in  the  discretion  of  the  City  and 
County,  such  other  property  of  the  grantee  as  may  be  pros- 
pectively useful  in  the  operation  of  such  utility,  upon  payment 
therefor  of  an  amount,  and  in  a  manner,  to  be  determined  as 
shall  be  prescribed  by  such  resettlement  franchise. 

3.  Any  such  resettlement  franchise  shall  make  provision  for 
the  extension  and  development  of  the  utility  operated  thereunder 
in  accordance  with  the  needs  of  said  City  and  County  and  the 
inhabitants  thereof  as  such  needs  may  from  time  to  time  arise, 
and  all  extensions  and  improvements  of  such  utility  subsequent 
to  the  date  of  such  resettlement  franchise  shall  be  subject  to 
the  terms  thereof. 

4.  No  such  resettlement  franchise  shall  in  any  case  confer 
upon  the  grantee  thereof  the  right  to  occupy  the  streets  or  public 


436 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CHARTER  AMENDMENT  34 


437 


M 


p    ,  I 

I      5  i 
,  tt 


1      « 


i  m 


places  of  said  City  and  County  for  a  longer  period  than  twenty 
(20)  years  from  the  date  thereof  unless  effective  provision  is 
made  therein  for  the  gradual  reduction  of  the  purchase  price  by 
means  of  an  amortization  or  other  fund  accumulated  out  of 
earnings,  sufficient  to  retire,  within  such  period  of  twenty  (20) 
years,  all  elements  of  intangible  value  included  in  the  purchase 
price  as  defined  in  subdivision  6  of  this  section. 

5.  No  such  resettlement  franchise  shall  in  any  case  confer 
upon  the  grantee  thereof  the  right  to  occupy  the  streets  and 
public  places  of  said  City  and  County  for  more  than  forty  (40) 
years  from  .the  date  thereof  unless  effective  provision  is  con- 
tained therein  for  retiring  within  such  period  of  forty  (40)  years, 
in  addition  to  the  intangible  value  referred  to  in  the  preceding 
paragraph,  at  least  all  that  portion  of  the  purchase  price  repre- 
senting fixed  structures  in  the  streets  and  public  places  and  all 
lands  and  landed  rights'-'  actually  used  and  useful,  at  the  end  of 
such  period  of  forty  (40)  years,  in  the  operation  of  such  utility 
and  included  in  the  original  appraisal  at  the  date  of  such  resettle- 
ment franchise  or  added  under  the  terms  thereof  within  twenty 
(20)  years  after  such  date. 

6.  Any  such  resettlement  franchise  shall  provide  a  fixed 
agreed  price  for  the  property  of  such  grantee  based  upon  an 
appraisal  at  a  date  named  therein,  which  shall  constitute  the 
basic  price  for  purchase  by  the  City  and  County.  For  determin- 
ing the  actual  purchase  price  at  which  the  City  and  County 
may  take  over  the  property  at  any  given  time,  additions  to  and 
subtractions  from  such  basic  price  shall  be  made  as  follows : 

There  shall  be  added  the  cost  from  time  to  time  of  improve- 
ments, additions,  betterments  and  extensions  properly  chargeable 
to  capital  account,  such  cost  to  be  ascertained  in  a  manner  to  be 
determined  by  such  franchise. 

There  shall  be  subtracted  from  such  basic  price  the  original 
appraised  value  of  any  property  permanently  alienated  by  the 
grantee  and  not  replaced  prior  to  the  time  of  such  purchase. 

There  shall  also  be  subtracted  from  such  basic  price  the 
amount  of  depreciation,  if  any,  in  the  value  of  the  tangible  prop- 
erty of  such  utility,  other  than  land,  which  may  have  accrued 
through  neglected  maintenance  subsequent  to  the  date  of  the 
original  appraisal  and  prior  to  the  date  of  such  purchase,  the 
amount  of  any  such  depreciation,  if  not  agreed  upon  by  the 
parties,  to  be  determined,  upon  application  of  the  City  and  County, 
by  the  California  Railroad  Commission  or  by  arbitration,  as  may 
be  set  forth  in  such  resettlement  franchise. 


^See   Paragraph    11,   Page   379,   under   Resettlement   Franchises. 


There  shall  also  be  subtracted  from  such  basic  price  the 
amount  of  any  payments  made  to  the  grantee  prior  to  the  time 
of  said  purchase  applicable  to  reduction  of  capital  value  or 
purchase  price  and  the  amount  of  any  amortization  or  other 
fund  in  the  hands  of  the  grantee,  or  payable  to  the  grantee, 
accumulated  out  of  earnings  for  the  purpose  of  effecting  such 
reduction. 

7.  Any  such  resettlement  franchise  shall  provide  for  the  in- 
vestment of  the  amortization  or  purchase  fund  in  the  securities 
of  such  utility,  or  of  other  local  utilities  operated  under  similar 
franchises,  or  in  the  bonds  of  the  City  and  County,  to  the  end 
that  such  fund  shall  be  invested  in  such  a  way  as  to  accumulate 
as  rapidly  as  shall  be  consistent  with  safe  and  conservative  man- 
agement, and  in  such  a  manner  as  to  minimize  the  cost  of  securing 
additional  capital  for  the  extension  and  improvement  of  the  plant 
of  such  utility. 

8.  Any  such  resettlement  franchise  shall  provide  for  adequate 
continuous  control  by  the  City  and  County  over  the  construction, 
accounts,  equipment  and  service  of  such  utility  during  the  entire 
life  of  such  franchise,  and  especially  it  shall  provide  for  the  main- 
tenance of  the  property  of  such  utility  at  the  highest  practicable 
standard  of  operating  efficiency  throughout  the  life  of  such  fran- 
chise. 

9.  Any  such  resettlement  franchise  may  provide  that  the  City 
and  County,  in  taking  over  the  property  of  such  utility  at  any 
time,  may  assume  the  bonds  then  outstanding  against  such  utility 
not  exceeding  in  aggregate  amount  the  appraised  value  of  the 
tangible  property  acquired  at  the  time  of  such  purchase,  and  in 
such  case  the  par  value  of  the  bonds  so  assumed  shall  be  deducted 
from  the  purchase  price  as  determined  in  accordance  with  such 
franchise.  The  bonds  so  assumed  shall  no  longer,  after  such 
purchase,  be  a  lien  upon  the  franchise  or  property  of  the  utilit} 
as  such,  but  may  be  secured  by  the  general  credit  of  the  City  and 
County,  or  as  a  lien  upon  a  fixed  percentage  or  amount  of  the 
gross  earnings  of  such  utility,  or  otherwise,  as  may  be  provided 
in  such  resettlement  franchise. 

10.  Any  such  resettlement  franchise  may  provide  as  a  next 
charge  after  operating  expenses  and  maintenance,  including 
proper  provision  for  current  depreciation,  an  allowance  to  the 
owner  of  such  utility  of  an  annual  return  upon  the  capital  value 
of  such  utility  represented  in  the  purchase  price  as  determined 
from  time  to  time  in  the  manner  prescribed  in  such  franchise, 
^t  may  provide  further  for  a  division  of  net  profits,  or  for  a  bonus 
for  skillful  operation,  or  for  other  means  calculated  to  enlist  the 
motive  of  the  owners  or  operators  of  such  utility  for  the  rendition 


P 


438 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


CHARTER  AMENDMENT  34 


439 


■! ; 


of  adequate,  safe  and  convenient  service  and  for  the  efficient  and 
economical  operation  of  such  utility. 

11.  Any  such  resettlement  franchise  may  provide  that  any 
share  of  the  net  profits  payable  to  the  City  and  County  under  the 
terms  of  such  franchise,  or  any  other  income  derived  by  the  Cit> 
and  County  from  the  utility  operated  under  such  franchise,  shall 
be  put  into  the  amortization  or  purchase  fund  in  addition  to  the 
regular  contributions  to  such  fund  out  of  earnings,  in  order  to 
hasten  as  much  as  possible  the  reduction  of  the  purchase  price  or 
capital  value  of  such  utility. 

12.  Any  such  resettlement  franchise  shall  provide  that  eight 
(8)  hours  shall  be  the  maximum  hours  of  labor  in  any  calendar 
day  for  the  employees  engaged  in  the  construction,  operation  and 
maintenance  of  the  utjlity  under  such  franchise;  provided,  that 
such  eight  (8)  hours'  work  shall  be  completed  within  ten  (10) 
hours,  except  in  the  case  of  the  operating  force  of  any  street  rail- 
way, in  which  case  the  working  day  shall  be  completed  within 
thirteen  (13)  hours,  and  provided  further,  that  nothing  in  this 
paragraph  shall  be  construed  to  prohibit  overtime  employment,* 
wages  for  such  overtime  to  be  paid  at  one  and  one-half  times  the 
regular  rate  of  wages  proportionate  to  each  hour  of  such  extra 

service. 

13.  No  such  resettlement  franchise  shall  include  more  than 
one  kind  of  public  utility  in  the  same  contract  or  ordinance,  and 
no  such  contract  or  ordinance  shall  go  into  effect  until  it  shall 
have  been  submitted  to  the  electors  of  the  City  and  County  of 
San  Francisco  and  shall  have  received  the  approval  of  the 
majority  of  those  voting  thereon. 

14.  Any  such  resettlement  franchise  shall  be  introduced  in 
the  form  of  an  ordinance  and  laid  over  for  at  least  thirty  (30) 
days  prior  to  being  passed  to  print,  during  which  period  public 
hearings  shall  be  held,  and  shall  remain  before  the  Board  for 
sixty  (60)  days  thereafter  before  its  final  passage,  and  shall  be 
passed  by  a  two-thirds  vote  of  the  members  of  the  Board  of 
Supervisors  and  shall  be  signed  by  the  Mayor,  or  in  case  of  hi= 
veto  of  such  franchise,  shall  be  repassed  by  a  five-sixths  vote  ot 
the  members  of  such  Board  in  its  final  form  and  published  not 
less  than  sixty  (60)  days  prior  to  the  date  of  the  election  at  which 
it  is  to  be  voted  on  by  the  people.  It  shall  be  the  duty  of  the 
Board  of  Supervisors  to  give  public  hearings  on  such  proposed 
resettlement  franchise  prior  to  its  final  passage,  and  immediately 
after  such  final  passage,  and  within  seven  (7)  days  thereof,  to 
cause  such  franchise  to  be  printed  in  convenient  pamphlet  form 

*The  remainder  of  this  sentence  may  be  omitted,  if  desired,   in  case  Amendment   34  is 
resubmitted  for   referendum. — (B.  J.  A.) 


for  public  distribution,  and  to  publish  daily  thereafter  up  to  the 
date  of  such  election  in  the  official  paper  of  the  City  and  County 
notice  to  the  effect  that  any  person  may  secure  a  printed  copy 
of  such  franchise  free  of  charge  by  application  therefor  in  person 
or  by  mail  to  the  Clerk  of  the  Board  of  Supervisors ;  provided, 
that  all  costs  of  printing,  publication  and  advertising  shall  be 
borne  by  the  applicant  or  applicants. 

15.  Any  such  resettlement  franchise  may  provide  that  the 
City  and  County  may  at  its  option  designate  a  Ucensee  who  shall 
have  the  same  right  to  take  over  the  franchise  and  property  of 
such  utility  upon  notice  from  the  City  and  County  as  the  City  and 
County  itself  has,  except  that  such  licensee  may  be  required  to  pay 
a  bonus  to  the  holder  of  the  franchise,  the  amount  of  which  shall 
be  fixed  in  such  resettlement  franchise,  in  addition  to  the  price 
the  City  and  County  would  have  to  pay  if  it  took  the  property 
over  for  itself  at  that  time,  but  the  designation  of  such  licensee 
shall  be  by  ordinance  only,  and  no  such  ordinance  shall  go  into 
effect  until  it  has  been  submitted  to  the  electors  of  the  City  and 
County  and  approved  by  the  majority  voting  thereon. 

16.  Any  such  resettlement  franchise  may  provide  that  upon 
the  annexation  to  or  consolidation  with  the  City  and  County  of 
San  Francisco  of  any  territory  not  now  included  in  said  City  and 
County,  any  franchises  or  rights  to  operate  such  utility  held  or 
claimed  by  the  grantee  of  such  resettlement  franchise  in  or  for 
all  or  any  portion  of  such  annexed  or  consolidated  territory  shall 
thereupon  be  surrendered  to  the  said  City  and  County  of  San 
Francisco  and  that  the  privileges  and  obligations  of  such  resettle- 
ment franchise  shall  thereupon  automatically  extend  to  such 
additional  territory  or  any  part  thereof  and  an  appraisal  and 
valuation  of  the  franchises  and  property  used  and  useful  or,  in 
the  discretion  of  said  City  and  County,  prospectively  useful  in 
the  supply  of  such  utility  to  the  area  so  annexed  to  or  consolidated 
with  said  City  and  County,  and  not  included  in  the  capital  value 
or  purchase  price  already  fixed  in  such  resettlement  franchise, 
shall  be  made  in  a  manner  to  be  prescribed  in  such  franchise  to 
the  end  that  the  option  of  the  City  and  County  to  buy  such  utility 
and  to  require  extensions  and  betterments  thereof,  and  all  of  the 
rights  and  obligations  acquired,  assumed,  granted  or  imposed  by 
or  upon  either  the  City  and  County  or  the  grantee  by  such  reset- 
tlement franchise  shall  extend  to  all  the  territory  now  or  hereafter 
included  in  said  City  and  County  so  far  as  such  territory  may  be 
occupied  by  such  utility ;  or  such  franchise  may  provide  for  the 
extension  of  the  terms  thereof  in  the  manner  just  described  to 


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such  annexed  or  consolidated  territory  only  as  shall  be  contiguous 
by  land  to  the  City  and  County  of  San  Francisco  as  now  consti- 
tuted. 

17.  In  the  negotiation,  framing  and  passage  of  any  such  re- 
settlement franchise  the  Board  of  Supervisors  shall  not  be  subject 
to  or  bound  by  the  terms  and  conditions  relating  to  franchise 
grants  contained  in  subdivisions  2  to  5,  inclusive,  of  section  6  of 
this  chapter,  but  may,  in  its  discretion,  impose  terms  and  condi- 
tions in  addition  to  and  different  from,  but  not  inconsistent  with, 
the  provisions  of  this  section. 

18.  Any  such  resettlement  franchise  may  be  amended  from 
time  to  time  by  ordinance  passed  by  the  Board  of  Supervisors, 
approved  by  the  Mayor  and  ratified  by  the  people  in  the  manner 
herein  prescribed  for  the  passage  of  such  franchise  in  the  first 
instance;  provided,  that  any  such  amendment  shall  not  be 
effective  unless  accepted  by  the  grantee  of  such  franchise  and  that 
such  amendment  shall  in  no  respect  contravene  the  provisions 
of  this  section. 

That  sections  7a,  7b  and  7c  of  Chapter  II  of  Article  III  are 
hereby  repealed. 

Ordered  submitted — Board  of  Supervisors,  San  Francisco, 
November  7,  1912. 

Ayes :  Supervisors  Bancroft,  Caglieri,  G.  E.  Gallagher,  Gian- 
nini,  Hilmer,  Hocks,  Jennings,  Koshland,  Mauzy,  McLeran, 
Murdock,  Murphy,  Payot,  Vogelsang. 

Absent:  Supervisors  A.  J.  Gallagher,  Hayden,  McCarthy, 
Nolan. 


(Signed) 


J.  S.  DUNNIGAN,  Clerk. 


OPERATING    PLANS  FOR  LOWER 
MARKET  STREET 

(See  Key  Sheet  Figure  36,  Page  139) 

Pretent  Plan.  Figure  36  has  been  prepared  in  order  that  comparison 
might  be  made  between  the  present  plan  of  stops  and  the  two  alternative  plans 
presented  herein,  i.  e.,  disregarding  certain  trial  improvements  introduced 
by  the  traffic  force.  The  position  of  all  stops  are  shown  as  in  Plans  A  and  B, 
and  the  reasons  for  the  elimination  of  the  unnecessary  ones  will  become  more 
apparent  after  a  study  of  the  revised  schemes.  For  example,  both  near-side 
and  far-side  stops  are  made  at  Sixth,  Fifth,  Fourth,  and  Third  Streets,  and 
also  an  intermediate  stop  in  the  Lotta's  Fountain  triangle.  In  this  present 
scheme,  the  average  distance  between  stops  is  368  feet,  which  is  19  per  cent 
less  than  the  recommended  Plan  A,  and  24  per  cent  less  than  tentative  Plan  B. 

Plan  A.  (Plate  10.)  In-bound  Stops.  At  present,  stops  are  made  at 
Fifth  Street,  west  side;  Fifth  Street,  east  side,  and  intersection  stop  at  Eddy 
Street.  One  of  these,  the  middle  stop,  has  been  eliminated,  and  the  safety 
intersection  stop  made  use  of  as  a  loading  stop,  assisted  by  a  single-car 
safety  station  located  as  close  to  the  special  work  as  possible  so  as  to  permit 
eastbound  vehicle  traffic  from  Powell  Street  to  have  ample  passageway  west  of 
the  station. 

In-bound  stations,  as  a  rule,  are  not  as  necessary  as  out-bound  stations, 
for  the  reason  that  in-bound  passengers  immediately  disperse  to  the  side- 
walks, and  no  waiting  at  the  station  is  necessary.  However,  in  the  case  of 
Market  Street,  a  special  condition  arises  owing  to  the  location  of  the  Ferry 
building.  Below  Second  Street,  it  is  found  from  observations  that  the  vast 
majority  of  ferry  patrons  walk,  but  from  this  point  westward  the  street  cars 
are  patronized  more  and  more,  the  heaviest  in-bound  loading  points  during 
the  rush  hours  being  at  Third  Street  and  Powell  Street.  Consequently,  an 
in-bound  station  has  been  located  at  the  latter  point,  and  the  Third  Street 
in-bound  station  lengthened  to  permit  of  two-car  crossings. 

At  Fourth  Street,  the  traffic  rules  would  ordinarily  dictate  that  Fourth- 
Stockton  Street  traffic  should  cross  Market  Street  at  right  angles.  However, 
on  account  of  the  offset  in  these  streets,  it  is  desirable  to  allow  this  traffic  to 
parallel  the  Ellis  Street  tracks,  so  that  the  in-bound  stop  may  be  located  as 
shown.  East  of  Kearny  Street  tandem  stops  must  be  provided  for,  the  first 
car  reaching  the  corner  to  take  the  forward  berth. 

At  First  Street  the  "near  side"  rule  is  departed  from  in  order  to  secure 
a  better  distribution  of  stops  and  clear  the  First  Street  thoroughfare  for 
vehicle  traffic  from  Battery  Street,  which,  with  First  Street,  is  an  extremely 
important  thoroughfare. 

From  First  Street  to  the  Ferry,  stops  are  shown  only  at  alternate  streets. 
This  is  for  the  reason  that  these  blocks  are  short— only  275  feet.  And  it  is 
believed  that  this  part  of  the  in-bound  run  should  be  freed  from  unnecessary 
stops  in  order  to  deliver  passengers  as  promptly  as  possible  at  the  Ferry. 
Observations  show  that  in-bound  traffic  below  Second  Street  is  extremely 
light,  so  that  the  elimination  of  these  intervening  stops  will  not  work  any 
serious  inconvenience,  considering  the  interests  of  the  vast  majority  of  in- 
bound passengers.  In  any  event  the  maximum  distance  Ferry-bound  passen- 
gers from  Fremont  and  Main  Streets  have  to  walk  to  reach  a  car  stop  is 

about  220  feet. 

If  it  should  appear  desirable  to  continue  "flag"  stops  at  every  in-bound 
crossing  during  the  morning  hours,  it  will  still  be  desirable  to  adhere  to  the 
limited   stop   scheme   shown   hereon   for  the  afternoon   rush,   at   least   after 


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4  o'clock,  when  approximately  six  times  the  number  of  passengers  travel 
Ferrv-bound  than  during  the  hours  of  morning  and  early  afternoon.  This 
change,  however,  may  result  in  some  confusion,  and  it  is  believed  to  be 
more  desirable  to  omit  the  extra  stops  altogether.  Plan  A  introduces  an 
average  distance  between  stops  that  is  less  than  three-fourths  the  length  of 
the  block  between  Jones  Street  and  City  Hall  Square,  which  is  approximately 
1,000  feet. 

Out-bound  Stops.  Starting  from  the  Ferry,  out-bound,  it  is  believed  that 
the  Sacramento  Street  stop  is  in  a  large  measure  unwarranted,  the  inter- 
section being  so  near  the  Ferry  terminal.  The  average  length  of  walk  from 
the  middle  of  the  block  to  the  first  out-bound  stop  is  not  excessive — 370  feet. 
However,  a  tentative  stop  has  been  shown. 

The  safety  station  in  the  plaza  opposite  Bush-Battery  Streets  may  be 
retained,  as  it  does  not  interfere  with  traffic,  although  it  is  not  in  a  very 
effective  position  for  tandem  stops. 

The  First  Street  Hne  should  "dead-end"  at  Market  Street,  and  not  cross 
the  throat  tracks,  at  least  during  rush  hours.  This  provision  need  not  neces- 
sarily invalidate  the  status  of  the  franchise  of  this  line. 

At  the  Sutter  Street  branch-off,  Sutter  Street  cars  should  berth  off  of 
Market  Street. 

At  Second  Street,  the  heavy  out-bound  loading  begins  and  the  "near  side" 
stop  is  shown  in  order  to  permit  proper  vehicle  crossings  and  to  avoid  an 
exceedingly  short  run  to  the  next  stop.  The  walking  distance  to  the  Second 
Street  stop  from  the  intersection  of  Post  and  Montgomery  Streets  is  practically 
the  same  as  to  the  next  stop  west. 

The  present  station  in  front  of  the  Crocker  National  bank  must  necessarily 
be  abandoned  with  four-track  operation,  although  the  tandem  stop  may  be 
located  in  practically  the  same  position. 

At  Lotta's  Fountain,  Third-Kearny  Streets,  the  station  must  be  enlarged 
for  a  two-car  stop.  This  point  is  the  heaviest  loading  point  along  Market 
Street,  exceeding  even  the  Ferry  on  the  out-bound  trips.  Here,  two-car 
crossings  must  be  rigidly  adhered  to  on  signal,  and  railway  inspectors  should 
co-operate  with  the  traffic  squad  in  securing  prompt  transits.  It  may  even 
be  necessary  to  dispatch  cars  from  the  in-bound  and  out-bound  stations, 
respectively,  at  Third  Street,  arbitrarily  on  signal,  as  in  rapid  transit  subway 
service.  This  is  the  most  congested  intersection  in  the  city,  and  it  may  be 
desirable  to  install  a  railway  dispatcher  in  a  small  tower  at  the  apex  of  Market 
and  Geary  Streets,  who,  relaying  the  traffic  signals,  will  control  car  transits 
by  means  of  semaphore  signals,  as  is  done  in  other  cities. 

Owing  to  the  excessive  obstruction  of  pedestrian  traffic  along  the  north 
side  of  Market  Street,  it  is  undesirable  to  stop  the  Third-Kearny  Street  cars 
in  the  triangle  opposite  Lotta's  Fountain.  In  this  position  cars  completely 
interrupt  the  flow  along  both  Market  Street  and  Geary  Street  walkways. 
The  cross-town  cars  should,  therefore,  make  the  run  from  Third  Street  to 
Kearny  Street  without  stopping.  And  a  north-bound  stop  opposite  the 
Chronicle  building  will  be  more  desirable  than  to  attempt  an  additional  stop 
in  the  triangle.  To  secure  this  result,  relay  traffic  signals  must  be  put  into 
effect  so  as  to  control  the  Market  Street  and  Geary  Street  lines  simultaneously. 
If  this  is  done  the  interruption  to  the  Market  Street  tracks  will  be  far  less 
serious,  as  the  in-bound  Geary  Street  cars  may  cross  to  their  position  on  the 
outer  tracks  while  loading  of  Market  Street  cars  is  taking  place  at  the  Lotta's 
Fountain  station. 

The  present  safety  station  opposite  Stockton  Street  should  be  moved  to 
the  east  side  of  the  crossing,  as  shown.  Its  location  is  entirely  incorrect, 
being  too  near  the  Emporium  station  and  on  the  far-side  of  the  intersection. 
The  near-side  safety  stop  on  the  Ellis  Street  tracks  should  be  used  for  loading 
purposes,  and  the  far-side  stop  eliminated.  As  Fourth  Street  is  also  a  heavy 
passenger  loading  point,  a  two-car  station  is  desirable. 

By  reason  of  this  change,  the  station  opposite  Grant  Avenue  should  also 
be  removed  to  the  near-side  position  and  extended  to  accommodate  two  cars, 


in  order  to  secure  a  more  even  spacing  of  stops.  In  this  position,  the  Grant 
Avenue  station  will  be  of  additional  value  in  drawing  traffic  away  from  the 
Lotta's  Fountain  station  and  thereby  reducing  congestion  there.  .Situated 
approximately  midway  between  the  Call  and  Phelan  office  buildings,  it  will  be 
able  to  do  this  more  effectively  than  in  the  present  far-side  position. 

A  difficult  problem  exists  in  the  two  out-bound  stations  opposite  Powell 
Street  First  the  westerly  station  is  unfortunately  located  directly  in  the 
line  of  all  street  traffic  between  Powell  and  Fifth  Streets.  Second,  the  stop 
here  practically  amounts  to  a  far-side  stop,  whereas  the  near-side  safety  stop 
opposite  the  Flood  and  Emporium  buildings  should  be  utilized  for  loading 
purposes  at  this  intersection.  Third,  it  may  be  desirable  in  the  near  future 
after  an  adequate  Mission  Street  terminal  at  the  Ferry  has  relieved  the 
Fifth  Street  stub  terminal  to  route  some  of  the  out-bound  cars  via  Mission 
Street,  returning  to  Market  Street  at  Fifth  Street,  in  which  event  this  station 
will  be  unavailable  for  loading  and  transfer  purposes.  After  much  study,  it  ap- 
pears desirable  to  move  this  station  westerly  to  a  point  approximately  midway 
between  Mason  and  Fifth  Streets,  where  it  will  be  in  a  position  to  receive 
this  Mission  Street  loop  loading.  In  the  position  shown,  the  Mason  Street 
station  will  require  a  walk  of  only  160  feet  from  the  Fifth  Street  building 
line  The  Flood-Emporium  station  may  then  be  moved  westerly  to  the  Eddy 
Street  branch-off,  and  it  should  be  extended  to  accommodate  two  cars.  In 
this  position,  the  station  will  be  but  85  feet  distant  from  the  Powell  Street 
building  line,  and  will  consequently  prove  more  convenient  for  transfer  pur- 
poses than  at  present.  However,  until  the  merits  of  this  change  become 
apparent,  the  present  westerly  station  may  be  retained  and  is  consequently 
indicated  hereon  as  "tentative." 

Plan  B.  In  the  alternative  Plan  B,  Figure  36,  the  station  stops  westerly 
from  Geary  Street  are  indicated  in  the  same  position  as  in  the  previous 
Plan  A  Commencing  at  the  Chronicle  building,  the  present  United  Rail- 
roads tracks  are  shown  diverted  to  the  east  side  of  the  street,  so  that  no  car 
interferences  with  the  Geary  Street  line  will  be  encountered;  similarly  at 
Sutter  Street.  In  all  station  locations,  except  at  Davis-Beale  Streets,  the 
spread  of  the  west  side  tracks  around  the  safety  station  occurs  opposite  the 
triangular  plazas,  so  as  not  to  reduce  the  width  of  roadway.  Although  eight 
cars  are  shown  at  these  points,  it  is  not  likely  that  such  a  condition  will  occur 
except  very  infrequently. 

On  this  plan,  the  protruding  corner  of  Sacramento  Street  at  The  Embar- 
cadero  has  been  receded,  in  order  to  provide  additional  roadway  area,  much 
needed  for  both  car  and  vehicle  traffic.  It  will  be  observed  that  in  this  position 
Spear  Street  may  now  be  used  to  much  greater  advantage  than  at  present,  in 
order  to  relieve  traffic  across  the  loop  throat. 

In  all  cases  free-way  for  vehicle  traffic  has  been  preserved  in  accordance 
with  established  traffic  rules. 


» 


DIGEST  OF  SPECIFICATIONS  FOR  THE 
MUNICIPAL  RAILWAY  CARS 

General  Dimensions 

Length    over    end    panels    32  ft.  5  in. 

Lensrth    over    bumpers     ^7  ft.  1  m. 

Width    over    belt    rail    8  ft.  6  in. 

Width    over    guard    rail    8  ft.  6  in. 

Height,  top  of  rail  to  top  of  trolley  board    11  ft.  9  in. 

Center    to    center    of    posts     2  ft.  9^  in. 

Truck  centers    20  ft.  10  in. 

Diameter   of   wheels    34  in. 

Wheel    base     4  ft.  10  in. 

Seating  capacity,  car  body  44 


Framing 

Body  Framing — To  b^  of  the  straight  side  type,  and  the  steel  side 
panel,  with  a  bottom  side  sill  angle  and  top  belt  rail  angle  to  be  riveted 
together  to  form  a  plate  girder  side  sill.  The  steel  side  panels  shall  be 
No.  8  U.  S.  Gauge. 

Body,  side  and  bulkhead  posts  to  be  of  Eastern  ash. 

Bottom  Framing — To  be  of  all-steel  construction,  supplemented  where 
necessary  by  pine  nailing  strips. 

Body  Bolsters — To  be  of  cast  steel  I-beam  section  not  less  than  10" 
in  width  and  9"  in  depth  at  the  center.  Bearing  on  side  sills  to  be  planed 
surface  at  least  14"  wide. 

Flooring — 13/16"x2j^"  T  &  G  maple  in  one  layer,  laid  lengthwise. 
The  car  floor  to  slope  downwards  2"  from  the  bolsters  to  the  end  sills. 
Floor  mat  strips  of  hard  maple  to  be  provided  in  the  aisles.  Floor  to  re- 
ceive one  coat  of  boiled  linseed  oil.  Platform  floor  to  be  11"  below  the  car 
body  floor  at  the  end  sill  and  of  the  same  character  as  body  floor. 

Platform  Framing — To  be  of  all-steel  construction  with  the  main  side- 
platform  knees  of  6"  13  lb.  channels  or  equal,  and  the  intermediate  fram- 
ing designed  for  a  stress  not  exceeding  12,500  lbs.  per  square  inch,  with 
maximum  load.  The  bumper  to  be  of  5"  llj^  lb.  channel  having  a  radius 
of  about  6'  9"  at  the  center. 

Roof  Framing — The  car  roof  to  be  of  the  plain  arch  type,  continuous 
from  end  to  end  of  the  car.  Roof  to  be  supported  by  continuous  metal 
carlins  at  each  post  bolted  to  wood  carlins,  and  by  two  intermediate  wood 
carlins  between  metal  carhns.  Roof  framing  to  be  covered  with  poplar 
boards,  2^"x^"  covered  with  National  Prepared  Roofing  Canvas,  "FF" 
quality  and  in  one  width  on  body  roof. 

Vestibules — To  be  of  the  round-end  clam-shell  type.  Each  vestibule 
above  the  belt  rail  shall  comprise  three  drop  double-sash.  Inside  and  out- 
side of  dash  below  window  rail  to  be  panelled  with  No.  16  U.  S.  Gauge 
sheet  steel.  Vestibule  roof  carlins  to  be  %"xl^"  elm  or  ash,  with  one 
iron  re-inforced  carlin  in  each  vestibule.  Inside  of  finished  rail  of  vestibule 
beneath  sash  to  be  re-inforced  with  a  ^"x3j/2"  iron  brace  in  one  piece  at- 
tached to  corner  and  intermediate  posts,  to  which  brackets  for  controller, 
handbrake  and  other  apparatus  are  to  be  bolted. 

Vestibule  to  be  of  the  P.  A.  Y.  E.  type,  and  provided  with  a  1^"  iron  pipe 
rail  arranged  to  accommodate  the  conductor  and  the  fare  box,  and  allowing 
a  26j^"  passageway  between  corner  post  and  step  stanchion.  On  the  con- 
troller  side  of  the  platform,   folding  iron   pantagraph   gate   to  be   installed 


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447 


and  sliding  gate  4'  high  provided  on  the  hand-brake  side,  closing  against 
the  car  body  corner  post  and  operated  by  the  motorman  from  his  position. 
Gate  opening  to  be  not  less  than  30"  in  width. 

Doors— Closed  central  portion  of  the  car  body  to  be  provided  with 
single-leaf  sliding  doors,  having  a  clear  opening  of  30". 

Sash— Body  to  have  11  window  openings  on  each  side,  those  in  thd 
central  portion  only  being  fitted  with  double  sash,  the  lower  sash  arrangea 
to  raise  vertically  to  the  level  of  the  bottom  of  the  top  sash. 

Curtains— AW  side  window  openings  of  the  car  body  shall  be  provided 
with  Pantasote  curtains.  Pattern  J,  Color  86,  mounted  on  Rex  metal  spring 
rollers.  Curtain  fixtures  to  be  Curtain  Supply  Company  s  ring  fixture  No  8». 
One  curtain  30"  in  width  shall  be  installed  in  each  vestibule  for  the  protec- 
tion of  the  motorman. 

^S-^a/^_Cross  seats  shall  be  Hale  &  Kilburn's  reversible  walk-over  type, 
199- A,  with  spring  cushions  and  backs  upholstered  in  rattan,  flat  Pressed 
steel  end  plates  and  pressed  steel  pedestals.  Cross  seats  shall  have  17  x34 
cushions  and  shall  measure  not  more  than  37%"  over  end  plates  so  that  the 
aisle  between  cross-seats  shall  not  be  less  than  24"  in  its  narrowest  part^ 
The  two  longitudinal  seats  shall  be  upholstered  in  rattan.  One  seat  of  slat 
construction  at  least  5'  6"  long,  arranged  to  raise  up  to  the  ceiling  of  the 
vestibule,  to  be  installed  on  each  platform. 

Inside  Finish— Where  of  wood  shall  be  of  selected  cherry,  finished  dull. 
Arch  ceiling  to  be  of  3/16"  Agasote  in  three  sections. 

Fare  Registration— Each  car  to  be  equipped  with  one  Johnson  fare  box 
and  with  one  Sterling  Meaker  No.  16  double  register,  operated  by  re- 
movable  foot  pedal   from   either  platform. 

Signs— FouT  illuminated  destination  signs  of  the  Electric  Service  Sup- 
plies Company  type  shall  be  furnished  on  each  car.  One  to  be  mstalled  in 
each  top  vestibule  center  sash,  and  one  in  each  middle  top  sash  in  the  closea 
compartment.  One  route  sign  box,  taking  12"  ground  glass  slides  on  two 
sides  shall  be  installed  over  each  platform  on  the  sliding  gate  side. 

Ventilation— The  closed  portion  of  the  car  shall  be  equipped  with  four 
exhaust  ventilators  of  the  Wilson  make  or  equal ,  each  having  a  capacity  un- 
der normal  operating  conditions  of  3,000  cubic  feet  per  hour.  Four  intakes 
about  4"x8"  to  be  provided  in  the  floor  of  the  closed  compartment. 

Miscellaneous  Fixtures— Four  galvanized  iron  sand  boxes  fitted  with 
an  air  sanding  device  with  each  car.  One  buzzer  on  each  end  of  the  car 
operated  by  push  buttons  located  on  each  side  post.  Each  end  of  the  car 
shall    be    fitted    with    an    "Eclipse    Life    Guard"    fender.  Five    porcelain 

enameled  iron  hand  straps  of  the  "R.  I.  C.  O."  type  over  each  longtitudinal 

seat 

One   Crouse-Hinds  Type  "W"  headlight  installed  in  the  center  of  the 

dash  at  each  end. 

Grab  Handles— Oi  enameled  iron  placed  on  the  inside  face  of  all  body 
corner  posts,  on  the  vestibule  and  body  corner  posts,  at  the  entrance  of  the 
platform,  and  on  the  gate  post  inside  of  the  vestibule. 

Steps— Two  folding  steps  of  the  Chicago  Railway  Company's  design  or 
equal  to  be  provided  on  each  side  of  the  car.     Steps  to  be  at  least  J    m 
width,  provided   with   at  least  a  4"  universal  safety  tread,  and  placed   14 
below  the  platform  floor. 

Brakes— Each  car  shall  be  equipped  with  a  complete  brake  rigging  for  air 
and  hand  brakes,  each  system  complete  in  itself.  Hand  brake  to  be  of  the 
Ackley  no-staflf  type  and  so  arranged  that  with  75  lbs.  pressure  on  the  brake 
wheel,  the  same  braking  power  is  provided  as  with  air  brakes. 

Lighting— AW  lamps  to  be  Tantalum.  115  V.,  series-burning  railway  lamps, 
having  an  efficiency  of  not  less  than  2.4  watts  per  candle.  All  lighting  wires 
to  be  run  in  iron  armored  conduits. 


Wiring— AW  wiring  and  electrical  apparatus  to  be  installed  so  as  to  con- 
form to  the  rules  and  requirements  of  the  National  Board  of  Fire  Under- 
writers. All  wiring  to  be  in  thoroughly  grounded  iron-armored  conduit.  All 
wiring,  conduit,  fittings  and  circuits,  after  installation,  shall  be  tested  to  full 
normal  voltage. 

Paint— Exposed  rough  steel  to  be  painted  as  follows:  Thoroughly 
cleaned;  primed  with  special  steel  primer;  puttied  and  plastered;  one  coat 
of  lead  color;  three  coats  of  rough  stuff,  rubbed  with  pumice;  three  coats 
of  color;  one  coat  of  varnish,  rubbed;  two  coats  of  heavy  body  wearing 
varnish.  Smooth  steel  (exposed)  to  be  cleaned  with  emery  and  washed 
with  benzine,  with  same  finish  as  for  rough  steel. 

Motor  Equipment 

Four  direct-current,  inter-pole  railway  motors  to  be  provided  in  each  car. 

Service  Conditions— Motors  are  intended  for  the  operation  of  cars 
weighing  about  21  tons  each  exclusive  of  motors  and  control  on  grades  up 
to  12%  ;  maximum  speed  on  level  tangent,  25  m.  p.  h.,  at  600  volts ;  schedule 
speed  desired  about  9  m.  p.  h.,  with  an  average  of  about  8  stops  of  6  seconds 
duration  each  per  mile.  Gearing  to  be  single  reduction,  with  pinion  having 
not  less  than  15  teeth. 

Capacity — Each  motor  to  develop  not  less  than  50  h.  p.  at  500  volts  D.  C. 
at  the  car  axle,  with  a  temperature  rise  above  the  surrounding  air  of  70°  C.  at 
the  commutator,  and  75°  C.  at  any  other  part  after  one  hour's  continuous 
run  at  500  volts  on  a  stand  test  with  motor  covers  removed  and  with  natural 
ventilation.  Motors  to  be  designed  to  operate  normally  and  continuously  at 
600  volts  and  safely  for  short  periods  at  voltages  up  to  and  including  750 
volts.  Efficiency  of  the  motors  with  gears  at  50  h.  p.,  600  volts,  shall  not 
be  less  than  83.5%,  and  the  speed  shall  not  exceed  600  r.  p.  m.  under  these 
conditions.  Armatures  shall  withstand  without  mechanical  injury  a  speed 
of  three  times  the  normal  under  the  above  load  conditions. 

Clearances— Motors  shall  be  designed  with  sufficient  clearance  for 
mounting  on  axles  with  48"  between  hubs.  With  motor  at  its  lowest  posi- 
tion, clearance  above  rail  shall  not  be  less  than  4"  with  a  34"  wheel. 
Height  of  top  of  shell  above  center  of  axle  shall  not  exceed  13^". 

Miscellaneous — Motor  including  axle  collar,  bearing  housings  and  pinion, 
to  weigh  not  more  than  2,400  lbs.  Shell  to  be  of  cast  steel  of  the  unsplit 
box  type,  approximately  cylindrical  or  octagonal  in  shape,  with  armature, 
bearings  encased  in  solid  housing.  Field  coils  of  the  mummified  type,  pre- 
ferably strap  wound.  Steel  gears  shall  be  of  the  solid  type  and  pinions  of 
forged  steel,  both  having  cut  teeth,  with  a  wearing  face  of  not  less  than  5". 
Gear  case  to  be  sheet  steel  and  oil  tight.  Manufacturer  shall  test  one 
motor  to  determine  capacity,  speed  and  thermal  characteristics.  A  flashing 
test  shall  be  included  at  1500  r.  p.  m.  and  at  a  voltage  not  exceeding  750 
to  determine  the  susceptibility  of  the  motor  to  flash  over  on  opening  and 
closing  the  line  potential. 

Control — Complete  control  equipment  of  remote  control  type,  with  two 
master  controllers. 

Trucks 

Bolsters — To  be  one-piece  cast  steel,  of  the  swing  type  and  not  less  than 
8"  in  width  over  chafing  plates.  Play  between  truck  bolsters  and  transoms 
shall  not  exceed  %".  Center  plates  shall  have  machined  contact  surfaces 
with  the  load  carried  on  anti-friction  metal. 

Springs— Bolster  springs  to  be  of  the  full  or  semi-eliptical  type  having  a 
length  of  not  less  than  32"  under  a  light  car.  Springs  to  be  so  proportioned 
that  the  deflection  caused  by  an  equally  distributed  live  load  of  18,000  lbs. 
does  not  exceed  2^". 


I 


448 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


III 


!'■ 


^1' 


Brake  Rigging — Inside  hung  and  provided  with  slack  adjustment. 
Parts  to  be  interchangeable,  and  pins  body  turned,  case  hardened  steel,  lYg  ' 
in  diameter.         Brake  heads  to  be  of  malleable  iron. 

Wheels  and  Axles — Wheels  to  be  of  rolled  or  forged  steel,  34"  in 
diameter,  pressed  on  axles  at  between  45  and  55  tons  pressure.  Journal 
boxes  to  be  of  so-called  semi-steel,  according  to  the  standards  of  the 
American  Electrical  Railway  &  Engineering  Association ;  wedges  of  the 
equalizing  type  or  equivalent;  journal  brasses  of  bronze,  with  3/16"  com- 
position lining.  The  EB  standard  axle  of  the  American  Electrical  Railway 
&  Engineering  Association  with  5"  motor  bearings  and  4}i"xS"  journals  to 
be  used.  Axles  to  be  of  forged  open-hearth  steel,  having  not  to  exceed  .05% 
phosphorous,  .05%  sulphur,  and  .60%  manganese  and  a  tensile  strength  of 
not  less  than  80,000  lbs.  per  square  inch. 

Weight — Weight  of  each  truck  complete  with  wheels,  axles,  center 
plates  and  side  bearings  to  be  not  over  7,000  lbs. 

Air  Brake  Equipment 

Each  car  shall  be  nrovided  with  a  straight  air  brake  equipment. 

Air  Compressor — To  be  of  the  duplex  single-acting  type  having  a 
capacity  of  16  cubic  feet  of  free  air  per  minute  when  operating  against  a 
reservoir   pressure   of  65    lbs.,    with    the   motor    operating   under   600   volts. 

Compressor  to  be  designed  to  run  SOVc  of  the  time  and  maintain  a 
reservoir  pressure  of  60  to  75  lbs.  without  serious  heating.  Lubrication  of 
compressor  cylinders,  connecting  rods,  and  crank  shafts  to  be  automatic  and 
by  the  splash  system. 

Motor — To  be  a  600  volt,  direct  current,  series  wound  motor  of  the  rail- 
way type  designed  for  operation  on  a  D.  C.  line  voltage  varying  from  400  to 
600  volts  without  any  external  resistance  or  starting  devices.  Both  motor 
and  compressor  to  be  enclosed  in  dust  and  water  proof  casings. 

Governor — To  be  actuated  by  compressed  air  only  and  to  contain 
neither  rubber  nor  leather  diaphragms.  Adjustment  shall  be  so  arranged 
that  any  desired  pressure  can  be  obtained  without  replacing  springs  or  other 
parts.  Governor  to  be  adjusted  to  close  the  circuit  at  60  lbs.  pressure  and  to 
open  at  75  lbs.  pressure,  and  to  be  provided  with  an  arc  extinguisher. 

Valves — Brake  valves  to  be  of  the  piston  valve  type  having  graduated 
admission  and  release  features  and  provided  with  release,  lap,  service  and 
emergency  positions.  Safety  valve  to  be  capable  of  discharging  20  cubic  feet 
of  free  air  per  minute  at  75  lbs.  pressure  and  having  a  range  of  adjustment 
from  60  to  100  lbs. 

Main  Reservoir — To  be  16"  in  diameter  and  60"  in  length,  constructed 
of  rolled  steel  tubing,  riveted  and  brazed;  reservoir  enameled  inside,  tested 
by  hydrostatic  pressure  of  200  lbs.  per  square  inch,  and  guaranteed  to  carry 
140  lbs.  of  working  pressure. 

Brake  Cylinder — To  be  10"  in  diameter  with  a  12"  stroke. 

Equalizing  Levers — To  be  so  proportioned  that  a  brake  force  equal  to 
100%  of  the  light  weight  of  the  car  shall  be  obtained  at  the  brake  shoe  with 
65  lbs.  pressure  in  the  cylinder.  . 

Tests — Air  brake  system  to  be  charged  with  air  at  a  pressure  of  80  lbs. 
per  square  inch  and  then  cut  off  from  the  source.  There  shall  be  a  loss  of 
pressure  of  not  more  than  6  lbs.  per  square  inch  in  25  minutes. 


\  I 


i 

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I 


I    M 


K 


■i 


GENERAL  INDEX 

Numbers  refer  to  pages,  unless  otherwise  noted. 


Ta. — Table 
PI— Plate 


Accidents: — See  Injuries  and  Damages 
Accounting : — Segregate     income     and 

capital,     • _ ^° 

Alameda  county: — Growth  of  traffic  to,  301 

variation  in   travel  to, 302,  303,  304 

Alamo    square : — Tunnel    under, 279 

Aisle  space  : — Geary  street  car, 182,  184 

U.  R.  R.  1912  car, 184 

Amendment      No.      34:— 5"^^      Charter 

Amendments. 
American      cities :— Characteristics      of 

growth   of,    .•••.••• 

Amortization   fund: — See  Decapitaliza- 

tion. 

Appraisal : — For    resettlement,     378 

possibly   necessary,    78,  383 

Arcade  store  front:— At  tunnel  portals  283 

narrow    streets,     282 

Arkansas    street :— Regrade,    290 

Army   street : — Importance   of,    285 


route    on, 


162 


3 
46 

30 
36 
27 
36 


widening    of,    285 

Assembly   districts: — 
population  by 25,  PI.  5,  Ta. 

Assessment : — For   extensions 41, 

Assessed    valuation :— Estimate    of    fu- 
ture  •  • 

fixes   bonding   limit,    

record    of •  •  • 

relation   to   population,    30, 

f  »  Audit :— City  to  have  power  to 377 

Automobiles :— Storage    for,    at    expo- 
sition,         ^2 

storage   for,   at   Union   Square,    284 

width    of,    a^  •  ^o? 

Average  haul:— By  lines,   Ta.    25 

length,    car,    }66 

length,  passenger  ride  and  haul,  166 

B 

Balance    sheet :— Comparative    general, 

U.  R.  R Ta.    33 

Balboa    street :— Regrade,    291 


Ch.— Chapter 
Fig. — Figure 


Baltimore   syndicate :— Buys    S.    F.   and 

S.   M.   system,    -  •  •  4^ 

Bank  clearings  :. — 16,    26 

diagram  showing  annual, ^ 

record   by   months,    •  •  333 

Bay  cities: — Manufactures   in,    16,     28 

Belt  line :— Clearance  for,  at  Ferry,   ..  310 

location    of,    299 

next   to   dock   wall,    45 

Benefit   fund: — Employees'   See   Labor. 
Bernal     cut: — Connection     with     Mis- 
sion  subway ^ 74 

co-operate  with  the   S.   P.   in,    ... ...     79 

grade   separation   at   Mission   st.,   72,    73 

importance    of ^^ 

recommended   arrangement,    74 

terraced   plan    for,    274 

widening    of,    •  •  •  •  •  •  ^2 

Berry  street :— Opening  of.    ...45.   121,  288 
Betterments : — 

out   of   earnings,    -  •  •   316 

record  of,  U.  R.  R., Ta.    39 

since   1902,    •••  316 

Bonding  power  of  city :— Available  for 

utilities,     ; -.IS.     36 

exempt     revenue     producing     utility 

bonds,     374 

falling  behind  railway  investment,   . .     18 

15%  of  assessed  valuation,    36 

growth   of,    36 

inadequate   for  utility  acquisition,    ..     79 
must  be   revised   for  municipal   own- 

ership 18,38,78,  79,  361,  373 

resettlement,    solution   of,    91 

Bonds :— Assumed     by     city     on     pur- 

chase 374,  3oo 

authorized    and    outstanding,    U.    R. 

R.,    Ta.    34 

city    to    assume    unfunded,    at    fran- 
chise   expiration,    381 

discounts    and    premiums    on,    U.    R. 
R Ta.     37 

discounts  on,  in  purchase  price,   374 

effect  of  serial  retirement  in  resettle- 
ment,          "1 


i  I 


I 


I. . ' 


!(' 


450 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Bonds : — 

interest  on,  U.  R.  R.,  Ta.    41 

rate  of  return  on,    315 

Market    Street    Ry.    5's  : — Impractical 

to  refund  with,    80 

majority     must     be     retired     from 

earnings,    323 

only  one-sixth  funded,   80,  317,  322 

sold  at  premium  after  fire,  322 

statement  of.  U.  R.  R. Ta.     35 

Underlying: — Cannot  be  refunded  by 

U.  R.  R.  4's, 80 

U.   R.   R.  4's : — Alternatives  to  raise 

market  vaUie  of 81 

effect   of   refinancing,    81,  322 

impractical  to  refund  with,   ...  .80,  322 

retire  at  market  price 317 

sinking  fund  retires  only  one-third 

of,     80,  317 

unsaleable  at  low  interest  rate 322 

Bonus  : — To  Labor,  see  Labor. 

to  operators,    386 

Boulevards : — No   railways   on,    431 

Brake    equipment : — Comparative     tests 

on,     212 

magnetic,     213 

on   double    truck   cars 199 

San   Francisco   practice,    212,213 

Branch  routes : — Uniform  headway  on,  145 
Broadway    tunnel : — Arrangement    and 

dimensions,    222 

cost    of 224 

first   project,    414 

location,     222 

recommended    section,    220 

supplemental    to    Stockton    street,    . .  218 

uses  of,    52 

Brook  street : — Relocation  of 273 

Bryant    line : — Rerouting  of,    153 

Buena  Vista  Heights : — Route  reaching  162 

Building: — Annual  record  of,   27,    28 

Bulkheads: — 

elimination  of 180,  198,  205,  206 

Burnham  plan,   41 


Cable  grips : — Types  of,   426 

Cable  lines: — 

car  equipment  on,  historical,   424 

extension  on   Diamond   street,    45 

improvements    in    cars    for,    210 

low  capacity  of 107 

necessary  in  San  Francisco,   211 

operating  rules  for,   174 

period  of  transportation  by,   415 

rush  hour  traffic  on,  109 

California  Railwav  &  Power  Co : — 

holds  U.  R.  R.  'stock,  321 

California  street: — 

electric   traction   on,    149 

traffic  count  on,   110 


California  Street  Cable  Railroad  Co: — 

condition  of  property  of,    341,  349 

franchises    of,    Ta.     55 

incorporation    of,    416 

trackage,     PI.       1 

"California"    type : — 
conversion  of  cars  to,    205 

Capacity : — 
track: — 

grade    limitations,     59 

on   Market  street,    122 

theoretical  and  practical,   60 

Twin   Peaks   tunnel,    244 

Cars,   sec   Car   Capacity. 

Capital : — Company    cannot    raise,    361 

private,  best  way  to  utilize,   385 

private,  for  extensions,   11,  38,    46 

short    term    extensions    not    desirable 
to,    380 

Capital    investment : — Basis    of,    in    re- 
settlement,       378 

statement  of,  U.  R.  R.,  Ta.     36 

Capitalization : — Do  not  increase,   316 

excessive  burden  of,    362 

operation  difficult  under  present,  . .  362 
temporarily  to  include  rehabilitation,  378 
United  Railroads, 321 

Capital    liability : — When    retired,    364 

Capp-Shotwell  loop  : — Routes  over,   . . .   161 

Car     berths : — Indicating     signals     for 

multiple, 310 

Car  capacity  standards,   . .  .60,  105,  Ta.    20 

average  for  electric,    154 

basis  of   standards,    106 

Car     Equipment : — See      also      Rolling 
Stock,  Municipal  Raiki.<ay  Car. 

additional  necessary, 9,  156 

adequacy   of,    345 

design  of  new,    177 

early  electric,   427 

essential  points  of,   181 

first   cable,    416 

formulate   resolution   regarding,    ....     78 

for  Twin  Peaks  tunnel,  245,  258 

hilltop,     200,  210 

history  of  development  of,    423 

horse,    424 

improvements  in  existing,   197 

in    service,    355 

lightness  necessary,   331 

maintenance  of,    317,  351 

'   methods  of  decreasing  necessary  ad- 
ditional,          36 

neccessary  additional  up  to  1920,  17,    35 

old   cable,    424 

on  Mission  lines,  inadequate,   110 

present 17 

rate  of  increase  in 156,  Ta.      6 

record  of  growth  and  change  in, 34 

record  of,  in  service,    Ta.      7 

relative  weights  of,    208 


INDEX 


451 


I 


Car  Equipment : — 

same  used  throughout  the  year,    ...   100 

schedule  of,    200,  Ta.    ^ 

service   capacity,    •  •    • |^ 

summer  and  winter  not  required,   ...   ^JV 

that    on    order    insufficient,    97,  lib 

type  on  various  lines Ta.     24 

United     Railroads     1912 :— Compared 

with    municipal,    Jg^ 

commendable  features  of,    195 

height  of  steps,   • Jg^ 

platform  arrangement  of,    J^^ 

recommendations    for,    Jo^ 

seating  arrangement,  objections  to,  184 

seat,  proportions  of,    lo7 

ventilation   of,    }^ 

width  of,   1^5 

"California"   type :— Seating  arrange- 

ment,  ^^ 

storm  protection  on, 198 

Cable  :— Improvement  in 200 

"Car  full"  sign :— Use  of,    173 

Carhouses : — 

additional  necessary,    •  •  •   346 

adequacy  of,    -^^^  ^^ 

capacity   of,    ™ 

fire  hazard,   -^^ 

Car  loading  speed :— 5"^^  Loading  Speed. 

Car  mileage :— Additional  rush  hour,  . .   15b 
basis  for  calculating  taxable  receipts,  407 

estimate   of,    1920,    ^..Z^'  J" 

record  of,  monthly 333,  Ta.  50a 

Cemeteries  :— Removal  of ^ 

contour  streets  through ^ 

Central    Railroad    Co. :— Formation    of,  412 

Charter :— Adoption   of,    421 

fixes  debt  limit .•  •  •  •  •  •  ••   ^^ 

franchise  provisions  impractical,  3C)«,  vi«u 

general    provisions 365 

practically    prohibits    private    exten- 

sions,    1^'   °1'  ^^ 

prevents  extension  by  assessment,   . .     80 
problems    to    be    solved    by    revision 

of^     IL  359 

should 'not  fix  wages .••  363 

wage  provisions  prohibitive,   oo^,  •5o/ 

Charter  amendments:— 

enacted    1907,   fixed   minimum   wage,  42X 

no  extensions  built  since, 41 

No.    34,    amortization    fund,    invest- 

ment  of,    •  •  ■. ^^^ 

amortization  of  tangible  and  intan- 

gible  values "^36 

distribution  of  income,   4J/ 

extensions,  provision   for,    ....  435 

franchise    term,    431,  4^ 

full    text    of,    V7    1^ 

general,   not   detailed,    77,  xo 

majority  necessary  to  pass  resettle- 
ment,    ^^ 


Charter  amendments  :— 

method  of  granting  franchises  un- 

j„^  43^ 

der, :  •. .^- 

municipal  control  provisions 4^/ 

municipal  ownership  under,    435 

permits   private   investment,    jg 

provisions  for  new  franchises, 309 

provisions  for  old  franchises,    ....  3AJ 

purchase    price,    '*31,  430 

purchase   provisions, •  •  •  • 

^  .  .370,  384,  431,  435,  437,  439 

purposes   of,    . . . . ; • ^ 

resettlement,  provisons  of,    ... ^J^ 

resettlement     to    be     approved     at 

election,     ™ 

resubmit,    Si 

scope...... ^ 

synopsis   of,    • ^ 

underlying  principles  of,    .  • . .  • 35y 

wages,    left     to     individual    fran- 

chises,     369,  3»/ 

working  day,  provision  of,  .  -  .434,  438 
No.    6,    public    service    commission, 

powers   of,    367 

resubmit,     11 

scope   of,    XT  •••,:i ^ 

supplementary  to  No.  34, 30/ 

Chattanooga  street :— Tunnel  under,   . .  l// 
Chestnut    street:— No    two-line    traffic 

on,     

stops  on,    

Chicago :— Accident  account  in 3^ 

average  ride  in,   -^ 

loading    conditions,    •••  -^^ 

standard  car  in ^^-     »J 

transfer  traffic  in,   ^S 

track  and  car  standards,  l»' 

Chicago     settlement     plan :— Board     of 

supervising  engineers, -^^ 

intangible  value  allowed    ••••••••  •  •  •  ^ 

modified,  recommended  for  S.  r.,  »»,  ^ 

profit-sharing ■^ 

purchase   price •  • •  •  ♦^^ 

Church  street :— Entrance  to  Noe  val- 

ley,     ^ 

municipal  routes  via,    159,  161 

subway  station  in ^^ 

tunnel  in  line  of,   •  •  •  •  •  ^^^ 

Circular  avenue:— S'r^  also  Bernal  Cut. 

improvement  of,   ^'^ 

City: — Assume    unfunded    debt    at    ex 
pi  ration 


64 

65 

328 


381 


cannot   compel    extensions. 


360 


conditions   confronting,    H,   79,359 

plan  of  procedure  for,   ^ 

regulative  powers  of,    •  •  •  -^^u 

— presentative  to  be  on  company  di- 


rectorate, 

resettlement   best   solution   for   prob- 
lems   of,    


91 


452 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


INDEX 


453 


t 


;!      I 


City  Electric  Company : — U.  R.  R.  con- 
tract   with, 347 

City   plan  : — See   also    Bernal   Cut,   bad 

features  of  present,   7 

Biirnham 41 

commission    to    carry    out    improve- 
ments      79 

improvements    in 151,  271 

City     Railroad     Companv  : — Formation 

of ' 414 

City's    share    of   income : — Tn    Resettle- 
ment, . . .  .87,  88.  89.  90.  Ta.  56,  Ta.     57 
now  insufficient   to  build   extensions,     79 

purposes    of,     379 

record   of 336,   Ta.     53 

reduced  since   1902 33>7 

too    low 318 

Civic    orp:anizations  : — Extensions    sug- 
gested   by 40 

Clay  Street  Hill  Railroad  Company: — 

first  cable   line 415 

rolling  stock  used  on 416 

Clearance    operation: — Diagrams    of,..    189 

necessary   for  exposition   lines 68 

not  obtained  with  U.  R.  R.  car. 188 

nullified   by   fender,    190 

"Cleveland"   Railing:— 5rr  Guide  Rail- 
ing. 

Cliff : — Means   of  approach 163 

Climatic  conditions  : — San   Francisco,    .       8 
Competition : — Tn    Twin    Peaks    tunnel,  239 

not    recommended 79,  397 

regulated    monopoly   preferable 289 

with  established  lines,  vs.  division  of 

territory,     48 

Competitive      municipal      system  : — See 
Afuniciffal  System. 

Commuter  district : — Defined Ta. 

differs    from   industrial    district 

fare  zone  map  of PI 

growth    of,     PI, 

population    of,    15 

relative    fare   and   time  of  transit   in. 

5,  PI.  3;  PI. 

time   zone  map PI. 

transportation   map PI. 

Commuter   traffic  : — See  also    Transbay 

Traffic,  history  of 422 

rush   hour 109 

shows  return  to  normal 300 

time  handicap  of,   5,  PI.      3 

time  of  transit  important 229 

Company : — See   United  Railroads. 
Conducting      transportation.      di.stribu- 

tion  of  cost  of Ta.    42 

Condition  of  property 339 

Conductors  : — 5"^^  Platform  Men. 

Conductors'  record: — Check  on 115 

Contingencies : — U.    R.    R.    makes    no 

provision    for 316 


2 

23 

4 

2 


4 
3 
2 


Contingent   reserve    fund  : — Under   new 

franchises,     376 

Continuous  property  : — Operation   as,    . 

363,    373,  382 

Contour  extension  of  Market  Street : — 
Sec  Market  Street. 

Contour   streets 290 

Contract     franchise  : — Charter    revision 

necessary   for 359 

Controller  :— Location    of 190,  204 

use   of   remote 190 

Cortland   Avenue   line,    153 

Cost  of  extensions 42,  46.  Ta.      9 

Courts : — To     review      Public     Service 

Commission,  decisions 77 

Cross-seats: — See  Seating  Plan. 
Cross-town  lines : — 

Army  Street,  importance  of 285 

effectiveness    of 168 

Mission-Richmond 153 

municipal 159,  161 

no  record  of  transfers  on 168 

Current   collection  : — For    rapid    transit 

cars 260 

Curtains  : — On  municipal  cars 179 

Curves,    clearance    on  : — See    Clearance 

Operation. 
Cuts : — 

Hayes  Street 275 

Market  Street 275 


Damages : — See      also      Injuries      and 
Damages,  due  to  tunnels,   224 

Debt,  floating: — benefit  of  City  assum- 
ing underlying,    385 

of  United  Railroads,   323.  Ta.    35 

Debt  limit : — See  Bonding  Power. 

Decapitalization : —     82 

amount   of,    resettlement 89,    90 

application  of,  to  resettlement,   363 

funds  increase  rapidly  toward  end.  . .     91 

in   Amendment  34,   . ' 369,  382 

in    resettlement 379 

of  rehabilitation  cost 378 

under   new   franchises 376 

use  of  fund,  in  emergencies 376 

Depot  terminal : — Arrangement  of,    ...   148 

Depreciation  : — Account  erratic 324 

comparative    reserve 327 

correct   treatment   of,    326 

decapitalization    of,    82 

effect  of  treating  as  cash  reserve,  . . .  337 

high  reserve  necessary,   316,  317 

out  of  earnings 82 

reserve  since   1902,  U.   R.  R.,    

316,   Ta.    41 

Development    of    transit    system : — See 

Extensions,    39 

"Devil    Strip,"    68,  185 

Diamond   Street : — Cable   extension   on,    45 


Discounts  :— Prevent    refundmg 

Distribution   system  : — U.   R.    R 

Diversion  of  traffic :— From   Market  to 

Mission 

Dividends  :— High   in   1906-7 

in  excess  of  surplus 

on  first  preferred  only 

record   of,    ^-^'   Ta. 

surplus  available   for •  •  • 

Divisadero  street  tunnel :— Comparative 
data Ta. 

cost     of 

possible  and  future 

recommended    section 

Division  Street :— Improvement  of.  45, 
Dolores   Boulevard  : — Extension  on,    . . 


80  ' 
349 

143 
325 
325 

80 

40 
317 

30 
224 
218 
220 
286 
289 


Earnings: — Sec  also   Income. 

aggregate  to   1929 394 

cannot   retire  unfunded  debt 80,  394 

comparative,  by  routes 166,  167 

distribution   of.    84.   387.  388 

effect  of  fire  and  strike 331 

estimated   for   future Ta.       5 

excessive  per  car  mile 337 

from  Exposition   transportation,    58 

future , J^'    30 

growth    characteristics 30,332 

high,   per   car • I' 

increased    by    exodus    from    business 

district .•  •  •     26 

not  disturbed  by  financial  depression,  331 

per  capita,    16.  315,  Ta.      5 

per   car    mile Ta.     51 

ratio   to   investment 3/ 

relation  to  population, 16,    29 

route,  per  standard  car  mile,   166 

status  of,  1929, 81 

Earthquake  : — See  Fire. 

Eddy-Hayes     line :— Replaces      Hayes- 
Ellis,    147,  152 

Eddy-South   Richmond :— New   line,    ..   152 

Eighth  street :— Extension  of 288 

Electric   Traction :— Cars    used,    427 

period  of,    ^26 

Electrification : — Of    steam    roads,    71 

Elevated     railroads  :—5"^r     also    Ferry 
Terminal, 

on  Minna  street  not  a  solution,   70 

questionable  for  downtown,    70 

Ellis-Jackson  line  :— 
to   replace   Sutter-Jackson 147,  152 

Ellis-Ocean  line:— 

round-about   "Z"   line 150,  151 

Ellis-Richmond  line  :— 
to  replace  Turk-Eddy  line 147.  152 

Embarcadero :— Improved  for  trucking,  119 

location  of  Belt  line, 45 

passenger  transportation   on,    299 

widening    of,    285 


Entrance     oassage : — Effect     upon     car 

loading   speed 192 

Entrance  passage : — 

methods  of  increasing 190 

of  uniform   width 198 

to  car  body,   1^ 

Equipment  :—5rr   Car  Equipment. 

Eureka  Valley  :-— Map  of 233 

photographic  view  of.   232 

perspective  view  of 234 

reached     by     contour     extension     of 

Market    street 151 

subway  loon  in 245.  PI.     16 

subway  station  in 243.  253.  PI.     14 

Existing    rolling     stock : — See    Rolling 

Stock. 
Expenses  : — See  Operating  Expenses. 
Exposition: — Sec    Panama-Pacific    Ex- 
position. 
Extensions : — 

by  property  owners 41.  46.    80 

capital  must  be  found  for,  46 

charter   practically   penalizes 368 

city's  share  now  insufficient  to  build.     79 

cost  of 42.  46.  Ta.      9 

deferred  for  abnormal  earnings 337 

early  losses   of 381 

effect  of  charter  provisions  on 38 

feeders  to  rapid  transit  trunks 44 

franchise  status  of •  •  380 

future     franchises     to     expire     with 

trunk,     375 

impossible  under  Charter .10,     81 

locations    for,   municipal    competitive, 

Ta.     12 

locations  for,  private  competitive,  Ta.     13 
locations  for.  unified  svstem,   ....Ta.     10 

many,  questionable  for  City,    46 

Merchants'  Association  report  on,   . .     41 

methods  of  financing 46 

mileage   and   grades   of,   unified   sys- 
tem,        Ta.     11 

on  rental  basis,   43,  46,  161 

order  of  develooment  of,   44 

plan   for  unified  operation   of,    ...39,    43 

possibly  not  by  U.  R.  R.,   38 

private  capital  for.  not  available,.  .10,  381 

program   of   recommended 42,    43 

revision  of  bond  limit  for  municipal,     18 

scope  of  study  of 41 

should    orecede    development,    381 

since   1907 41 

since    1902 396 

six  to  nine  years  behind,   33,    42 

spacing  of 44 

suggested  by  civic  organizations,   ...     40 

under   resettlement 379 

U.  R.  R.  cannot  finance,  361 

Extinction  : — Operating    to,    preposter- 
ous,        381 


II 


!i    .12 


454 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Falcon   avenue  : — Regrade   of,    291 

Fare : — Average,    319,  334 

limitations  imposed  by  fixed,  .  .10,  382.  386 

zones   of,    PI.      4 

Fare  box  : — EflFect  on  passageway 205 

remove    bulkheads    to    accommodate,  198 
Fare  collection  : — See  also  Prepayment. 

in  Twin  Peaks  tunnel 262 

Far-side  stop  : — For  cable  cars 173 

Fender  : — Nullifies   clearance   operation,  189 
Ferry  terminal : — Adequate  service  im- 
possible on  present  loop,   305 

alternative  plan  for  relief  of 

296,    310,    PI.     19 

annexes  to  building,    309 

capacity  of  loop,    143,  305 

comparative  car  and  boat  arrivals  at, 

305,  306 

conditions  at,   1905 140 

co-operate   with   Harbor   Commission 

in  improvement  of 79,  295 

distribute   loading  at 297 

double-end  loading  at,    127 

equalize   frontage  at,    308 

fixed  car  berths  at,   297 

improvements   in 295 

larger  plaza  required,    296,  307 

Market  Street  traffic  bound  to,   107 

minimum  present  necessities,    ...297,  311 
necessary  improvements  before   1915,  311 

north  and  south-side  terminals,  311 

north-side  service  to,    124 

parcel  delivery  at,    299 

provide  car  storage  space  at,  ....297,  305 

rearrangement  of  present  loops 312 

recent  changes,  no  improvement,   . . .  307 
recession  of   Sacramento   Street  cor- 
ner necessary, 297,  310,  311 

simultaneous  boat  arrivals  at,   305 

south-side  stub  overloaded,    143 

space  for  cab  stands  at 307 

temporary  improvement  plans  for,  ..311 
traffic  at : — See  Commuter  Traffic. 

traffic  regulation  at,  299 

traffic  to,   Ta.  22,  Ta.    23 

traffic  variations  at,  300 

typical  rush  hour  conditions  at 298 

Ferry  terminal  elevated  structure : — 

alternative  plan  for,   296,  310 

alternative  plan,  future  expansion  of,  311 

artistic  features  of.   310 

clearance  for  belt  line,  309 

details    of,    PI.     19 

dispatching  system,    310 

foot-passageways   on,    297,  312 

incline  approaches  off  Market  street,  296 

mezzanine  concourses  for,   309,  310 

platform  arrangement  of 309 

separation  of  loading  platforms,  297,  309 


Ferry  terminal  elevated  structure: — 
summary  of  recommendations  for,  . ,  308 

two-track  loop 296 

Fillmore    Hill    line: — Capacity   of   cars 

on, 60 

limited  capacity  of 57 

Fillmore-Sixteenth   line: — Extension  of 

service   on,    153 

Fillmore    Street    tunnel : — Arrangement 

and  dimensions 221 

best  entrance  to  exposition,   52 

comparative  data  on Ta.     15 

municipal   routes   via 159 

section    for 220 

special  work  at  portal,    221 

urgency    of 218 

Finance  : — Cost  of  extensions 42,    46 

bv  short-term  mortgages,    81 

City's  credit,  effect  of  expanding  mu- 
nicipal   enterprises 361 

condition   of,   U.    R.   R.,   no   resettle- 
ment,      81,    83 

effect  of  losses  on  U.  R.  R.,  316  ' 

future   betterments,   out   of  earnings,  316 
historical.   San   Francisco   street  rail- 
ways,       428 

in  resettlement,  plans  of,   88 

methods  of.  for  extensions,   46,  361 

refinancing  U.  R.  R.  4's 81 

serial   retirement   of  bonds   in   reset- 
tlement      91 

status  of,  U.  R.  R 362 

U.  R.  R..  difficulties  in  1906-7,   325 

Financial  and  operating  records,  analy- 
sis   of 315 

Fire    of    1906: — Caused    exodus    from 

business    district 26 

effect   upon   population 16 

effect  upon  traffic  and  earnings,   331 

surrender  of  U.   R.   R.   stock  to  off- 
set losses  due  to,  321 

First-Fifth  street  line : — Abandon 148 

Five-block     law : — Track    used    under, 

48.  160 

validity  must  be  established,   48 

Fixed  charges : — Burden  of,  362 

Floating  debt : — See  Debt. 

Folsom    street    tunnel 278 

Fort       Mason       tunnel :  —  Alternative 

alignment  of,   217 

legal   obstacles,    52 

uses    of 51,  218 

Four  tracks: — See  Market  Street. 
Franchise      plan  : — See     Resettlement; 

Charter   Amendment   34. 
Franchise,     resettlement : — See    Reset- 
tlement. 
Franchises,    extension : — Basis    of    cal- 
culating income  on,   375 

requirements    for    Exposition,    68 

same  conditions  as  trunk  lines, 375 


INDEX 


455 


Francises,  extension: — 

short,   without   referendum,    375 

status    of, ^80 

taxes   for  non-paying 375 

Franchises,     new :— 5"^^     also     Charter 

Amendment   34, 374 

City  given  power  to  audit, 3^7 

City  purchase  of,   374 

City's  consent  necessary  for  sale  of,  376 

decapitalization,  prQvisions  of 374 

distribution  of  income  provisions,   ..  376 

forfeiture  of,    ^77 

indeterminate,     374 

paving  provisions, 377 

purchase  price  provisions,   374 

readjustment  of  trunk  line  franchise 

conditions,     ^^5 

reserve   funds  not  to  be  impounded,  377 

sinking  funds,    375 

term    of,    ;  •  •   374 

use  of  renewal  fund  in  emergencies,  376 

Franchises,    present: — Blanket    contract 

in   place   of,    • H 


charter  provisions   governing. 


365 


Citv  given  right  to  grant,   415 

clafmed.    1902 PI-     20 

earning  power  of,    •■•   3^ 

equalize  life  of,    «j'0'  •^ou 

equalize  percentage  tax  requirements.  403 

expiring  in   1929 80 

extension  of,  in  1879 417 

general   statement  of 393 

granted   since  1902 396 

history  of  provisions  of 427 

legal  questions  involved  in 11,  397 

litigation  necessary   to   fix   status   of,  395 

modify  obsolete  conditions  of,   375 

obligations  on  Company 326 

percentage  tax  provisions 393,  402 

problem   of 359 

questionable  status  of 395,  PI.     21 

remaining  after   1929, 80,398 

requirements   for  exposition,    68 

schedule  of  expirations 

400,  Ta.  55,  PI.    22 

status    of 393 

Franchise  term: — Amendment  34... 431,  436 

limitations   imposed   by   short,    381 

under   resettlement 369 

Franklin-Broadway-Gough    line :— Un- 
desirable,         51 

Front-Mission     &     Ocean     Railroad:— 
formation    of,    414 


Gates :— Forward    exit,    next    to    bulk- 

head,    181,    199,  206 

forward  exit,  widened,   200 

opened  at  each  stop,   174 

shding,    preferable,    209 


Geary  Street   Railroad,  cars  ion—See 
Municipal  Railway  Cars. 

extension   of,    147 

first  cable  lines  over,   417 

history    of, 420 

important  connections   for,    163 

routes  via,    158 

lower  Market  Street  agreement,   421 

lower  Market  St.  decision  regarding,  421 
service  to  ferry  over 125 

Geary    Street    Railroad,    outer    termi- 
nus r — 

available    streets 163 

location    of 162 

recommendations  for.    165 

to   develop   Richmond,    163 

General     and     miscellaneous     expendi- 
tures : — 
comparative  record  of.  U.  R.  R.,   ... 

327,  Ta.  41,  Ta 

distribution  of,  U.  R.  R.,  Ta 

Golden    Gate     Park: — Subways    under 

not   justified,    292 

typical  crossings  for,   293 

Grade  crossings: — None  in   subways,..  244 

Grades  : — Limitation  on  capacity,   59 

limit   speed  down 174 

magnetic  brakes   for  cars  on  heavy,  213 

necessitate  four-motor  cars, 188 

worst  on  Union  street  line,   57 

Grade     separation  : — Below     southwest 

portal.  Twin   Peaks   tunnel,    245 

Ingleside,     265 

Southern  Pacific  at  Mission  St.,.. 72,    73 

Growth : — Bonding  power  of  city,   

car  equipment,  17„  33.  34»  Ta. 

characteristics  of  American  cities.   . . 
commuter  district,  future,  21,  23,  Ta. 

earnings  and  transit  investment,   

earnings,  street  railway, 


43 
42 


36 
7 

21 
2 

15 

30 


effect  of  fire  upon,   16,  20 

future,  basis  of  estimate,   22 

indices   of,    18 

industrial,     16,  27 

investment  in   street  railways,    ...18,  43 

population 15,  19 

rate  of,  San  Francisco 22 

real  estate  valuations  and  sales,  .  .26.  27 

telephone   calls, 27,  28 

territorial,  San  Francisco 24 

track  mileage,  ....  17,  31.  32,  Ta.  8,  Ta.  50b 
traffic   and    service,   monthly,    U.    R. 

R., 333 

Guide  railing : — Arrangements  of,    .... 

"Cieveiand,'' '.■.'.'.'.".*.'.'.'.".'.' .'.'.190,  193',  199 

cut  off,    180,  205 

I      Oakland   radius   rod 180,  205 


If 


456 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


INDEX 


457 


Is''  \ 

J-     > 


I 


H 


Haight  Street  line :— Rerouting  of,  145,  151 
Harbor    front: — Co-operation    of    city 

and  state  on,   295 

passenger  transportation  on,   295,  299 

Harbor   View :— 5^<?   also   Panama-Pa- 
ciAc  Exposition. 

avenues  of  approach 55,  151 

contour  map  of,    54 

location  and  topography •  •     53 

necessity  for  tunnels  into,    53,  217 

tunnels  into,   •  •  •  217 

tunnels  into,  comparative  data,   ..Ta.    30 
Haul,   passenger: — Low   in    San   Fran- 
cisco           olD 

Hayes-Ellis   line -.—Replaced   by   Eddy- 
Hayes, 147 

Hayes  Street :— Cut, •  •  ^/^ 

rerouting  of  line  on 147,  151 

Headroom :— For  trolley  cars  in  Twin 

Peaks    tunnel,    260 

Headway: — Comparison,  past  and  pres- 
ent,       1^ 

during  midday, }73 

effect  of  irregularities  in,    11<J 

irregularities  in, •••   }73 

minimum  for  Market  street,   . . .   l^A  Ij^ 

safety  limitations   on 59 

theoretical  and  practical  minimum,..     60 
uniform  for  trunk  or  branch  lines,  ...   145 
Hill  property : — Resubdivision   of,    ....  290 
Hillside     streets :— Typical     cross     sec- 

tions,    •  •  •  •  287 

History     of     Transportation     develop- 
ment,      411 

Horse   car: — 

attitude   towards 415 

period  of  transportation  bv 412 

types  of, :•••.••  ^23 

Hours    of    labor :— Charter    limitations 

of, 365 

effect  of  charter  provisions, 387 

for  municipal  railway  employees,     •  •  366 

in   Amendment   34 369,  434.438 

platform  men,  classification  of,   .  .Ta.     45 
Howard    Street :— Reserved    for    heavy 

vehicles,    109,  119 

Hyde  Street  cable  line 57 


I 


323 


Income  :—See  also  Earnings,  

distribution  of,    ••J-'^kk'^r^'     .^ 

84,  323,  387,  388,  Ta.    41 

distribution  of,  new  franchises   376 

distribution    of,    under    resettlement, 

Ta.    56 

graphic  analysis  of, 324 

miscellaneous   deductions   from 

327,   Ta.    41 

sharersi    in ^^' 


Income,   residual,   net : — Defined 85 

decrease   in 317 

distribution    of,    under    resettlement, 

85,  379,  Ta.  56,  Ta.     57 

sufficient  only  for  dividends  on  Pre- 
ferred,          80 

Increase — Decreasing  rate  of,  in  popu- 
lation,          21 

Industrial   growth,    16,    27 

Ingleside : — Grade  separation  at 265 

Injuries    and    damages :— Analysis    of, 

Ta.    49 

low  in  San  Francisco,  319,  328 

record  of  expenditures  for,  .  .327,  Ta.    42 

Inspection  of  property  : — 

detailed  results  of,   341,  Ta.     54 

scope  of,   341 

Inspectors  : — At  congested  points,    . . 

Intangible  value  : — Amount  of,    

decapitalization  of,  .82,  363,  374,  379,  382 

definition   of, 86 

reduced  by  betterments  out  of  earn- 

316 


173 
88 


ings. 


unavoidable,     383 

Interest  on  debt,  U.  R.  R.  :— 
comparative,    327 

Intersections  : — Abandon,    crossings    at 

First  and  Market  Streets,   127 

announce  on  cars,   174 

limit  traffic  across  Market  at,  127 

power   off   at,    174 

Investment : — 

Amendment  34  protects 369 

duplication  of,  with  two  svstems,   . .     41 
for    subways    and    electrified    steam 

lines,   37 

future,    37 

gaining  on  bonding  power, 18 

in  extensions,  cannot  be  retired, 381 

methods  for  protecting 363 

necessary,  in  extensions,    Ta.      9 

necessity   for   retiring,    363 

per  track  mile,   Ta.    53 

ratio   to   earnings,    37 

retirement  of,  difficult  in  short  term, 

363,  381 

return  on,  under  resettlement 91 

seventy-five   per   cent    to   be   covered 

by  bonds, 374 

six  to  nine  years  behind, 33,    42 

supported    by    San    Francisco    reve- 
nue  315,  Ta.    53 

within  next  decade 43 

Islais  Creek  Flats:— 
filling  of,   from  Twin   Peaks  tunnel,  266 


Jefferson      street : 
Fort    Mason. 


—  Extension      under 


288 


Kearny-Montgomery  loop, 147,  148,  152 

Kiosks :— Central     Island,     at     Eureka 

Valley,     253 

location    of,    ^5o 

sidewalk,   desirable,    253 


Labor :— Benefit  fund,  to  adjust  wages 

of,    ^^7 

bonus  and  benefit  to,  under  resettle- 
ment  85,  379,  386,  Ta.  56,  Ta.    57 

difficulties    arbitrated,    379 

distribution  of  charges,  U.  R.  R.,  Ta.    44 

may  be  an  issue  at  any  time, 362 

operators'  views  upon,    389 

party  in  profit-sharing 84,  386 

share  in  recommended  settlement,  . . . 

86,  Ta.    56 

share  reduced  since  fire,    329 

Laguna  Honda   station :— Change   from 

first   plan 242 

details  of,  first  stage rn'^y      Vc 

details  of,  second  stage,    257.  PI.     15 

development    of,    243,  25i) 

impractical  with   straight  tunnel,    ...  230 

location    of,    242,  255 

perspective   view   of, 237 

surface  portal  not  advisable  at,    235 

Laguna  Street :— Municipal  route  in,  . .   162 

Leese   Avenue :— Widening  of,    285 

Legal  obstacles :— To  Fort  Mason  tun- 
nel,         52 

Legal  questions: — Computation  of  tax- 
able  receipts,    4^ 

five-block    law,    •  •     48 

franchise    status,    11»  397 

Limited    service : —    JSO 

on  San  Mateo  line 153 

via   Turk-Eddy,    152 

Load    curve  :— Daily,    99 

rush   hour,    1^1 

Loading :— Average  for  rush  hour,   ...   113 

by  hours  or  15-minute  periods,   154 

characteristics  of,  typical  routes,   ...   157 

effect  of  delayed  schedule  on,   110 

excessive,  on  single  trips,   113 

excessive,  remedied  by  more  cars,  . .   173 

inbound  on  Market  street, 114 

preferential    standing,    •  •  •  JO/ 

rush  hour,  by  15-minute  periods,  113,  114 
standards  of  car,   ......106,  154,  Ta.    20 

zones  of    iot' 

Loading    time  :— Chicago, 201 

comparative,  ..104,  125,  126,  193,  201,  203 

effect  of  entrance  width  upon,  192 

improved  by  double-end  loading,   . . . 
^ 127,    202,  203 


methods  of  decreasing,  191 

slow  in  San  Francisco 103,  125,  201 

terminal,    201 

Logarithmic   cross-section    paper: — Ex- 
planation  of, 29 

Long  -  haul    traffic: — Requires    higher 

service   standard, 154 

Longitudinal  seats  : — See  Seating  Plan, 

Lotta's  fountain : — Safety  station  at,   . .  206 
Tetrazzini's    celebration    at, ..  Frontispiece 

M 

Maintenance  and  renewals : — Record  of 

expenditures  for,  U.  R.  R.,  

Ta.  41,  Ta.  42,  Ta.    43 

to  be  met  out  of  earnings,  82 

Maintenance,    rolling    stock : — Cost    of, 

351,  354,  Ta.    42 

effectiveness    of,    351 

good,    317,  328 

painting,    351,  353 

overhauling, 352,  353 

schedule  of,    351 

Maintenance,    track  : — Abnormally    low,  328 

cause  of  deferred,    340 

distribution  of  cost  of,  U.  R.  R.,  Ta.  42 
high  reserve  to  care  for,  deferred,  . .  316 
neglected  near  franchise  expiration.  361 
recommended    appropriation    for,    . .  .  328 

record  of  expenditures  for 327 

Manufactures  : — Annual   record   of,    ... 

27,   Ta.      4 

bay  cities  gain  in 16,    28 

decrease  in  San  Francisco  since  fire.    28 

falling  behind  population.  16,  28,  Ta.      4 

Marin  county : — Record  of  travel  to,  . .  301 

variation  in  travel  to,   302,  303 

Market  and  Fairmount  R.  R.  Co. : — In- 
corporation,   417 

Market-Castro  line  : — Diversion  to  Mis- 
sion in  future, 147 

extension   of,    153 

Market-Mission   loop, 144 

Market  Street: — Agreement  for  opera- 
tion on  lower,   421 

assignment  of  stops  on,   

132,  137,  138,  445,  PL   10 

capacity  of  tracks 122 

car  distribution  on,  104,  121 

congestion  on  lower,  relief  of,  117 

congestion  on,  points  of 120,  121 

co-operative  operation  on 125 

cross-sections   of,    129,  131 

cut,    275 

distribution  of  cars  on 120,  121 

double-end   loading   along 127 

extra-traffic  on,  divert  to  Mission.   . .   143 

Ferry-bound  traffic  on,  107 

flag  stops  on 445 

four  tracks  on 79 


458 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Market  Street : — 
limit  traffic  on  intersecting  lines,   . . .   127 
necessity    for   terminal    improvement,     79 

near-side  tandem  stops  on,   136 

operating  plans   for 441 

operating   rules    for,    136 

preponderance  of  traffic  on,  107,  108 

present  plan  of  stops  on,   PI.     10 

relief  of  congestion   on,  by  loops  or 

stubs 124 

reserve   for   passenger   travel,    119 

results    of    street    layout    on   conges- 
tion   in 104 

Sacramento    street    corner    set    back 

to    relieve 127 

seat  flow  on 132,  134,  135 

service  on  outer  tracks,  effect  of.    . . 

122,    125,  137 

shelters    on 138 

short  haul  trippers  for,    124 

speed    on 121 

traffic   at   stations 123 

track  arrangements  on 

128,    134,    135,  139 

unnecessary  stops  on 445 

vehicle  traffic  at  Fourth  street 116 

Market   Street   Cable   Ry.   Co. : — Incor- 
poration   417 

competition  with  Omnibus  R.  R..    . .  418 

Market  Street,  contour  extension  of: — 

228.  231,  286 

diagram  of 233 

features    of 232 

hillside    construction 287 

perspective   view  of 234 

Punnett  plan  for,   286 

urgency  of,    242,  286 

Market    Street   extension   rapid   transit 

tunnel,    225 

alignment  of 229 

alternative  plan  for,   227,  PI.     16 

capacity  of 244,  262 

contour  plan  recommended,   246 

disposal  of  material  from 236,  266 

effect  of  contour  extension  on  cost,  . .   228 

effect  on  local  running  time 

.....228,  265,  PI.     17 

Eureka  Vallev  details 

' 254,  PI.   14,  PI.     16 

extension  to  McCoppin  street,  or 
Market  Street,  four  tracks  neces- 
sary for  free  competition  in,   .  .239.  264 

fare  collection  in,  262 

four-tracking   of 262 

future  rapid  transit  bore,  255 

grade,    limiting 230,  233 

high-level  vs.  low-level 229 

inclined  exit  from,  at  Castro  St 244 

Laguna  Honda  station,  details,    ..PI.     15 
location   of   portals,    230,241 


Market    Street   extension    rapid   transit 
tunnel : — 

McCoppin  Street,  portal  at 235,  245 

objects   of,    229 

portal    at    sub-grade,    difficult    south 

of  Church 230 

plan  and  profile  of PI.     13 

projects    investigated 225,241 

rapid  transit   necessities,    227 

recommendations  for,   227,  242,  246 

routing  problem  in,   161 

Seventh  Avenue  extension  to, 258 

southwest  portal 235 

sub-level     connection     with      Market 

subway 227,  230,  239,  242 

suburban  connections  for 264 

subway  extension  desirable,  ...227,  239 

territory  onened  by 22S,  264 

transfers  essential  for 161 

trolley  bore   recommended 227.  2^ 

vehicle  traffic  in,  impractical 229 

ultimately   exclusively    rapid    transit.  26? 

western  portal  of 235 

Market  Street  extension  tunnel : — Type 

and  general  design:   241 

comparative  data Ta.     31 

construction  without  Market  subway.  248 

enlargement   of,   ultimate, .   244 

essential   points 241 

headroom   for 246 

Laguna  Honda  station,  first  stage, ...  256 
Laguna  Honda  station  with   Seventh 

ave.  extension 257.  258 

length   of  stations 244,  246 

location  and   tvpe  of  stations 243 

only     standard     equipment     in.     ulti- 
mately   245 

property  and  easements  for 267 

rolling    stock,    clearance    for   largest. 

258,  260 

sections  of,  typical, 259 

signals  in,    245 

third  rail  current  collection 260 

two-level   platforms   for 260 

utilities   in,    261 

ventilation    of 245.  263 

Market     Street    Railroad     Company : — 

extensions  to  lines  of 415 

formation    of 412 

Market   Street   Railway   Co. : — Consoli- 
dation  418 

financing    of,    428 

franchise  expiration 395 

Market  Street,  straight  extension  of- — 

impractical 228.  230 

necessary  regrading  for 231 

Market  Street  subway,  project  A. : — 

alternative  arrangements  of 238 

connection  with  lower  Market  Street 
subway 244 


INDEX 


459 


Market  Street  subway,  project  A: — 
connection  with  Twin  Peaks  tunnel,   .230 

details   of PI.     14 

Eureka  Valley  station  of,   253,  254 

Eureka  Valley  to  Valencia  Street  de- 
sirable,      227 

headroom  in,    238 

length  of  stations,    244 

necessity  for  studies  of,    241 

recommended  plan   for 252 

second  section  at  high  level, 242 

stations    in , 243 

types  considered,   248,  253 

Market  Street  subway,  project  B: — 
Sec  also  SubziHiy  Platform  Arrange 
ments. 

branches  to,    245 

connection  with  Twin   Peaks  tunnel,  242 

determining   factors   in 246 

four-track   sublevel   unit   section   rec- 
ommended,     244,  250,  251 

future  low  level  bore  parallel  to  pro- 
ject A 242 

independent    sublevel,    two-four-track 

section,    248,  249 

independent    sublevel    two-bore    sec- 
tion,  250,  252 

local  line  in,   245 

necessity  for  studies  of 241 

standard  four-track  sections  for,  247,  248 

types  considered 248,  250 

Masonic    avenue : — Extend    line    across 

Panhandle 292 

municipal   route   on 159 

McAllister  street : — Routing  of  line,    . .    147 
McCoopin     street     portal :  —  Retained 
after   building    Market    street    sub- 
way,     .245,  264 

Merced      district : — Adequate      utilities 

needed  for  growth,    24 

Merchants'     Association  : — Report     on 

extensions,     41 

Metropolitan     district : — Important     in 

bay  region,   16 

population   independent   of  municipal 

boundaries 16 

Metropolitan    railroad,    418 

Mezzanine  concourse,  248,  253 

Midday  service 156 

Mileage — See      Track      Mileage,      Car 

Mileage. 
Minimum  wage  : — See  Wages. 
Minna  street : — Direct  entrance  to  busi- 
ness section,  161 

elevated  railroad  on,  70 

Mission  : — outlet  from.   See  Bernal  Cut. 

standing  load   into 164 

Mission   Dolores : — First  settlement  at,  411 
Mission      Park :  —  Obstacles      to      cut 

through 277 

Mission-Richmond  line: — Routing  of,..   153 


Mission-Sixteenth  : — Rush     hour     trip- 
per  line,    153 

Mission  Street: — Extensive  loading  on,  110 

headway  irregular  on,    110 

only  outlet  to  south,   150 

preponderance  of  traffic  on,    ....  107,  108 

rerouting  of  line  on,   148 

reserve  for  passenger  travel,   119 

short  run  line  on,   148,  153 

Mission   street   subway  : — Connect  with 

Bernal  cut,    '. 74 

Mission-Sunset      tunnel:  —  Cross-sec- 
tions,      267,  268 

direct  connection  between   Park  and 

Mission 239 

effect  of   Market   street   contour   ex- 
tension on,    228 

location  and  type,  228 

portals  of  recommended  plan,   240 

projects  proposed 240 

typical    portal,    combined    traffic    and 

transit,    269 

Mission-Twenty     Fourth     line  : — Short 

run  at  rush  hour,    148 

Monopoly : — Regulated     preferable     to 

competition, 389 

virtual,  if  company  will  build  exten- 
sions,      378 

Montgomery  street: — One-line  car  traf- 
fic    on,     via     Kearnv-Montgomery 

loop,  147,  149,  152,  Ta.    32 

too  narrow  for  tunnel 277 

Motors : — Heating    of,    on    grades 235 

municipal  car 447 

Municipal  control : — 3^ 

by  rental  basis, 161 

commission  to  guard  city's  rights,  . .  373 

powers  not  retroactive,    365 

regulative  powers 13,  360,  390 

Municipal      ownership: — Charter      de- 
clares  for,    365,  420 

bond   limit,   proportion   for   railroads 

alone,    37 

bond     limit,     revision     of    necessary 

for,     18,    38 

effect   on  city's  credit, 362 

effect  on  company's  credit,   361 

extensions    under,    42 

history    of 420 

orivate  capital  used  as  means  to,   ...   385 
ultimate,      under      proposed      fran- 
chise,     368,  373 

under   rental  plan, 161 

Municipal  railway  cars : — Best  t>T)e  for,  177 

brakes 448 

changes  in  original  design  of 179 

compared  with  U.  R.  R.   1912  car,  . .   182 

digest  of  specifications  for, 445 

framing   of,    445 

general   design   of,    PI.     11 

inclined   floor  of 194 


460 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Municipal  railway  cars  : — 

loading   time   of,    202 

motor    equipment,    447 

platform  arrangement  of, 179 

seating  plan  for,   178 

trucks   of,    447 

views    of,    178,  180 

Municipal     system : — See     also     Geary 
Street. 

all  competitive,    158 

cannot  serve  many  districts,   160 

charter    wage    scale    discriminates    in 

favor  of, 365 

city  lacks  bonding  power  for,   79 

co-operative    development    under    re- 
settlement,    378 

indirect  routes  for  Twin  Peaks  tun- 
nel  lines, 160 

lacks  terminals  for  Mission  lines,   . . .    160 

routing  of,    158 

Municipal  system,  Competitive  : — 162 

alternatives   for   development  of,    . . .     48 
bonding  capacity  insufficient   for,    . .     79 

conditions    confronting,    160 

difficulties  in  profit-sharing  with, 385 

downtown   terminals   for 162 

duplication  of  investment,    10,  163 

five-block  law,  use  of,    48 

locations   of   lines    for Ta.     12 

magnitude   of   problem,    48 

many  extensions  questionable  for,   . .     46 

map  of,    47 

only  as  last  resort,   79,  161 

routing,    162 

transfers,   effect  of  lack  of,    160 

Municipal    system    development : — loca- 
tion of  lines,   Ta.     10 

recommended lOt    79 

routing,    158 

N 

Net    earnings  : — Comparative,    327 

Net  residual  income  : — See  income. 

New    routes  : — Mission-Sixteenth,    ....   153 

Post-Polk-Pacific 152 

Noe     street : — Future     subway     station 

at, 243,  255 

Noe  valley : — Cable   line  into,    45 

contour    extension    of    Market    street 
reaches,    151 

reached  by  Church  Street  line, 45 

tunnel  into,  277 

Non-prepay  cars: — Loss  of  fares  on,     115 
Non-stop   lines : — See  Limited  Service,  150 
North   Beach  &   Mission   R.   R. : — For- 
mation   of,    412 

o 

Oakland  : — Becoming       self-  centered 

city 5,    20 

gain  in  poulation  after  fire, 20 

traffic  to,  see  Commuter  Traffic. 


Ocean    avenue  :— Development    of,     . . .   289 
Ocean   shore  railroad : — Use   for  inter- 
urban    traffic 71 

Omnibus  : — Period      of     transportation 

by 411 

photograph   of,    423 

Omnibus  Railway  Company  : — Competi- 
tive war  with  Market  Street  Cable 

Ry.,    418 

formation  of,   412 

Open  cut:— For  Seventh  avenue  ex- 
tension,    258 

south  of  Twin  Peaks  tunnel 266 

Operating  expenses: — See  also  Plat- 
form Expenses,  Maintenance,  In- 
juries and  Damages,  General  & 
Miscellaneous,  Power. 

analysis  of,  U.  R.  R.  by  years 

Ja.  41,  Ta.  42,  Ta.    43 

comparative  distribution  of,   327 

distribution  of,  by  years,  U.  R.  R.,  Ta.    43 

graphic   analysis   of, 324 

in  resettlement  calculations 84 

per   car   mile,    Ta.     51 

variations    in,     325 

Operating  rights : — Interchange  of,    ...   161 
Operating   ratio  : — Future   standard,    . .  318 

no    future   decrease   in,    80 

record  of,  U.  R.  R., Ta.  41,  Ta.     43 

Operating  rules : — Infractions  of,    173 

Operating   statistics : — Derived,    . . .  Ta.    52 

Ordinances  : — Amendments     to     traffic,  292 

speed  restrictions,  170 

Overhauling: — Record  of  car, 351,  355 

Overhead   construction : — U.    R.    R.,    . .  349 

Overloading : — See    Loading. 

Owl  service,   ^ 158 


Pacific  heights  : — Served  by  Post-Polk- 
Pacific,    152 

Packages : — Carried    on    cars,    173 

Painting : — Car,    record    of,    353 

schedule   of 351 

Panama-Pacific     International     Exposi- 
tion : — Auto  storage  at 52 

entrances    to   grounds 64 

franchise     requirements     for     exten- 
sions  to,    68 

layout  of  grounds, 65 

revenue  from  transportation  to,   ... .     59 

traffic  to  :  attendance 49,     58 

distribution   of,    49 

estimate   of, 58 

opposite  to  regular  traffic 52 

present  facilities  suffiicient  for  low 

days,    51 

transportation    facilities    to:    avenues 

of  approach,    54,  Ta.     15 


INDEX 


461 


49 
60 

17 

62 


Panama- Pacific     International     Exposi- 
tion : — 

capacity  necessary, 

capacity  of  cars  to,   

capacity    of   lines    and    tunnels,    . . 

Ta.    15,   Ta.    16,   Ta 

capacity   of   lines   to,   without   tun- 
nels,      

Chestnut   street   congested,    64 

distributing  trunk  thoroughfares,  . .     62 
extensions  to,  unified  plan  without 

tunnels,     •  •  •     61 

extensions    to,    unified    plan     with 

tunnels,    •  •  •     63 

extensions    to,    should    be    logical 

afterward,    5^1 

Fillmore   tunnel  best  entrance,    ...     52 
Franklin-Broadway-Gough  line  un- 
desirable,      51 

necessity  for  tunnels  into,    53 

present  facilities,   49,  50,  51,    62 

requirements,   no  tunnels,    51 

routes   to,   without   tunnels,    ...Ta.     16 

routes  to,  with  tunnels, Ta.     17 

terminals  at, 64,  65,    66 

water   transportation   to,    55 

Panhandle    crossing : — 292 

Park    &    Ocean    Railroad    Company:— 

organized,     •  417 

Park   crossings  : — Plans   for 292 

Parking:— For  broad  streets,  ..291,  PI.     18 
Parkside    lines :— Through    service    via 

Hayes 1^^ 

Passenger  flow  : — Rush   hour 

.. 107,   108,   165,   PI.      9 

Passenger    terminal,    74 

Paving  :— Condition   of 340,  344 

new    franchise    provisions    regarding,  377 

rehabilitation    required 345 

requirements  on  U.  R.  R.,    326 

Pedestrians :— To    ferry,    109 

Peninsula : — Annual     record     of     com- 
muter  traffic   to,    _•  301 

high  cost  of  transportation  to,  handi- 
cap,      •  •  • \ 

outlet  to  via  Bernal  Cut, ^-/o 

outlet  to  via  Potrero  and  San  Bruno 
Avenues,    45 

People's   omnibus,    412 

Philadelphia :— Profit-sharing    plan    in, 

_ 86,  386 

Physical  propertv  :— Condition   of 

.....'. 339.    Ta.    54 

Pierce   street  tunnel :— Almost  prohibi- 
tive,      218 

Pittsburgh  :— Average  haul,  166 

Platforms,  car :— Improvements  in,    ...  204 

lengthening  of,    J^ 

municipal  car,    1'^ 


Platform  expense :— Comparatively  lo\y,  318 
effect  of  charter  time  limit  and  mmi- 

wage    on,    ^1^'  ^°' 

record  of  expenditures  for,    

327,  Ta.  41,  Ta.    42 

variation   in,    -^29 

Platforms,  loading:— 5r^  also   Subway 
Stations. 

elevated  ferry  termmal,    •^ 

exposition    terminal,    ^ 

length    in    subways      244 

Market   Street:— ■ }^ 

two-level  platforms  in  tunnel M) 

Platform    men  :— Rules    for,    •  -  •   173 

share  of  income,    T,a.     W 

wages,    scale    of,    •  •  •  •    la.    JO 

working  days  of,    oiy,  OJU,  ooo 

Policy:— S^^  Transit  Policy. 

Polk  street:— Good  to  serve  Exposition 

concessions,    51,    62 

lacks   terminal    facilities    for   exposi- 

only  important  line  to  Harbor  View,    49 
Population :— 5"^^  also  Growth. 
assessed  value,  relation  to,  ... ...  .30, 

by  assembly  districts, .25,  PI. 

density,  by  assembly  districts,    ..Ta. 
disregards  municipal  boundaries,    .4, 
distribution   and   density,    San   Fran- 
cisco,  Frontispiece, 

earnings,  relation  to,    29, 

effect  of  fire  upon,   • . .  • ; 

exodus  of,  from  business  district, ... 

follows    utilities _•; •  •  •     ^4 

growth  of.  Pacific  Coast  cities,  ..Ta.      1 
San  Francisco  and  commuter  dis  t.  4.     15 
Post    office    receipts :— Annual    record 

of,     27,    28 

Post-Polk-Pacific :— New    route,    . .  147,  152 

Potrero  avenue :— Extension  of,   28^ 

outlet  down  Peninsula  via,   45 

municipal    route   on,    ]^ 

Potrero   hill :— Direct   route   to 288 

municipal    route    to,    •  • 1 J^ 

Potrero  and  Bay  View  Railroad 414 

Powell   street :— Congestion   of,    . . .    ..  284 

small  cars  on 1^-  ^^.  * 

traffic  characteristics m 

Power :— Consumption    and    unit    cost, 

Ta.    47 

contract  provisions  for ■••••   ^^ 

cost  of,  U.  R.  R.,  .  .318,  327,  329,  Ta.    42 

for  cable  lines 348 

interest  charge  on  purchased 3^ 

interruptions  to  supply  of,  348 

maximum   demand 347 

new  source  of,   developed -j-  348 

sources    of,    •  •  340,  340 

Power  plants:— 5^^  also   Substations. 
reserve   capacity  of ^' 


36 
3 
3 

16 

23 
30 
16 
26 


t    If 


r^^^?  T 


« 1 . 

1'!  ' 

.1,1. 


Hi    T     ' 


;  4  J 

I 


■to  i 


j^:    11 


462 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Powell  street  railroad  system : —   417 

Prepayment     fare     collection  : — Advan- 
tageous,      177 

change  class  1300  cars  to,  210 

class   100  only  cars  suited  for,   208 

for   cable   cars,    211 

in  Twin   Peaks  tunnel,    262 

load  at  both  ends  on  Market  street,  127 

makes  possible  more  service,   115 

narrowest  cars  using, 209 

not  given  fair  trial 103 

platforms   for,    190 

saving  in  fares  by, 115 

Present  traction  situation : —   360 

franchise   requirements,    368 

Presidio  &  Ferries  Railway: — 

condition   of  property,    350 

improvements  in  cars,    210 

trackage   map,    PI.  1 

Procedure : — Formulate  general  fran- 
chise ordinance,    7S 

plan  of, 77 

resubmit  Amendment  34,    77 

resubmit  Public  Service  Commission 

Amendment  6, 77 

Profit-sharing,    385 

City,    alternative,    377 

City,  represented  on  directorate,  379,  390 

fixed  by   franchise,    376 

improbable   with   competitive   munici- 
pal system 385 

Philadelphia  plan  of,    386 

plans   for, 387 

record  of,  past,   389,  Ta.    53 

under   Resettlement,    Ta.    56 

Property: — Condition  of,   .....339,  Ta.    54 

owners,  extension  by, 41,  46,    80 

sale  of  forbidden  by  Amend.  34  with- 
out city  consent,    376,  434 

Public    service    commission  : — Advisory 

on   franchises,    78 

audits   books,    377 

balance  of  power  in,   391 

chairman,  selection  of,   391 

engineers    on, 391 

franchises  granted  upon   certification 

of,    375 

personnel    of,     391 

powers  of,  77,  373,  391 

removed  from  politics 373,  390 

representative  of  utilities  on,   390 

settle  wage  disputes,   377 

supervise  reserve  funds,  376 

under   resettlement,    378 

Public  works,  board  of: — Powers  over 
utilities  to  be  transeferred  to  pub- 
lic  service   commission,    367 

Pull-ins : — Relative  decrease  in,    355 

Purchasing    power  '  of    city : — See    also 
Bond  Limit. 
falling  behind  railroad  investment,  18,  361 


Purchasing  power  of  city: — 

growth   of,    • .  36 

increase     for     municipal     ownership, 

18,  38,  78,  79,  361,  373 

present, 36,  361 

relation  to  population,    36 

Purchase,   city: — See   also   Recapture. 

by  assuming  debt,  374 

city  bonds  for,   374 

city  credited  with  renewal   fund,    . . .  375 

decapitalization  necessary  for,   384 

fund  for  in  resttlement,   .' . . .  379 

in  Amendment  34, 431 

methods  of  determining  price,  383 

Purchase  fund :— Out  of  earnings, 369 

Passengers: — Monthly  record  of   .  .Ta.  50a 

statistics  of,   Ta.  48 

R 

Railroad  Commission: — 

organized,     421 

should  audit  books  of  company,    . . .  315 
to  supervise  Public  Service  Commis- 
sion,     77,   373,  390 

Railroads : — 

in   San   Francisco,    320 

operated  1864-5, 413 

operated    1893,    419 

Rapid  transit: — See  also  Market  Street 
Extension   tunnel. 

Bernal    Cut,    79 

electrification   of   steam   lines 71 

elevated    railroads,    70 

limited-stop    cars,     150 

order  of  development   of 69 

parking  for, 291 

subway  system  not  now  necessary,..  69 

surface    systems    feeder   to,    44 

to  Richmond  and  beach, 152 

ultimate,  in  Twin  Peaks  tunnel,   227 

will   double  30-minute  time  zone,    . .  72 

Ratios,    Ta.  52 

car  miles  per  track  mile,    334 

per  car  hour,    335 

derived  operating  statistics, Ta.  52 

earnings  per  capita,    334 

earnings  per  car  mile  by  routes,   . . .  167 

earnings  per  track  mile,    334 

passengers  per  car,    334 

Real   estate : — 

treatment  of  in   resettlement,   379 

record  of  valuation  and  sales,  ....26,  27 

Recapture  : — Railway    property,     ......  82 

date  of.  under  resettlement,   ..87,  89,  90 
effect   of   serial   retirement  of  bonds 

91 


on. 


new    franchise   provisions   for,    374 

upon    franchise    expiration,    377 

without    cost,    in    case    of    forfeiture,  377 
Receivership : — 
minimum  company's  share  without,  .  388 


INDEX 


463 


Redistribution    of    service :— 153 

determination   of    increase,    basis    of,  154 

essentials    of,     153 

recommended,    Ta.    26 

terminal    district,     155 

Referendum : — 
not    necessary    on    short    extensions,  375 

on    franchises,    369 

Refunding : — 
impossible  with  U.  R.  R.  4's  or  Mar- 
ket Street  5's, 80 

Regrading : —    290 

Arkansas  Street,  290 

Balboa  Street, 291 

Church  Street,  277 

Falcon  Avenue,   291 

Hayes  Street, 275,  276 

Market  Street, 275 

San  Jose  Avenue,  273 

Sansome  Street 290,  291 

Twentieth  Street 290 

Regulation  : — See  also   Municipal  Con- 
trol. 

and  control,    390 

City's  power  of, 13,  360,  420 

powers  not  retroactive, 365 

Rehabilitation : — 

capitalized    temporarily,     378 

determine    program    of, 78 

necessary  amount  of,    .8,  la.     54 

necessary    at    present    franchise    ex- 
piration, no  resettlement,  361 

out    of   earnings,    362 

summary  of, 339,  Ta.    54 

under    resettlement,     378 

Renewal  fund : — 

credit  City  with  at  purchase, 375 

in  cash  or  readily  negotiable  securi- 
ties,     ;  383 

Rental:— Of    railway   lines,    at    exposi- 
tion   terminal,    67 

attitude  of  operators,   390 

basis  of  providing  extensions,    . .  .43,    46 

desirability   of,    161 

determined  by   Public   Service   Com- 
mission,       375 

Rerouting : — See    Routing. 
Reserve    funds: — See    also     Amortisa- 
tion Fund,  and  Renewal  Fund. 
amortization,  when  may  be  used,   .  . .   380 

contingent    reserve    fund,    376 

for    city    purchase,    379 

from    city's    share,     379 

growth  of,  under  resettlement, 

^ 87,   89,    90 

Reservoir    station :— Provision    for,    at 

Eureka    Valley,    253 

Resettlement :—  See        also       Charter 
Amendment    34. 

Amendment   34,    provisions,    370,435 

analysis  of  plans  for,   Ta.    56 


Resettlement: — 

basis  of  value  used,    86,   378,  384 

benefit   to   city,    •  •  •  384 

best    solution    of    difficulties 91,  395 

conditions  to  be  met,    360 

decapitalization    under,     379 

effect  of  serial   retirement  of  bonds,    91 

equahzed    franchise    terms,    378,380 

essentials  of,  91,  364,  377 

extensions    under,    379 

financial    plans    for,     88 

financial    results,    recommended   plan, 

Ta.     57 

fund  for  city  purchase  under,   379 

may    require    appraisal,    78 

negotiate  with   U.   R.   R.,    78 

non-profit  sharing  plan  of, ^ 

participants    in,     84,  364 

plans  for, 82,  84,  87,  89,  90,  Ta.    56 

preferable    to    continued    legal    war- 

^2iX&        oVO 

primary  importance  of,    364 

recommended  plan  of,    85 

results,   no   resettlement,    81 

service   regulation  under,    378 

term  of  franchises  under, 369 

transfer    of   property    to    third    party 

under,   370 

ultimate  financial  results  of,  86,  87,  89,    90 

urgency    of    ^ 

virtual    regulated   monopoly   under,..  378 
wages,    negotiate    in    each    franchise,  369 
Residual   net   income: — See  Income. 
Return  on  investment: — 

effect  of  charter   wage   scale,    362 

in    1911,    315 

no  guaranteed,  in  Plan  6,    86 

under   resettlement,    91,   Ta.     57 

Richmond : — 

adequate       utilities       would       cause 

growth,     •  • ; 24 

development  by  Geary  street  line,  ..   163 
direct  connection  with  Mission  needed,  153 
Ride  : — See    Average    Ride. 
Riding  habit :— Cannot  be   changed  by 

legislation, 387 

effect    upon    wage    situation,    386 

high    in    San    Francisco,    .6,     16 

Right    of    way: — Car    on    straight    line 

to    have, 174 

Rolling    stock: — Improvements    in    ex- 
isting,    177 

general    recommendations    for,     ....   197 

improvements    in,     197,    PI.     12 

loading   time   of,    •* 203 

schedule    of,    Ta.     29 

Class  1500, 202,  PI.  12E 

bulkhead   opening,    205 

guide   rail   for,    205 

platform    improvement,    204 

seating    arrangement,    207 

unloading    facilities,     206 


^4  O 

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lu,. 


464 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Rolling  stock : — 

Qass  1550 207,  PI.  12C 

replacement  of  car   body,    207 

Class  100,  208,  PI.  12A 

Class  700 209 

Class  1300,  210,  PI.  12F 

Union    street 210 

cable  cars 211 

Round   trip   riding 168 

Routing: — Effect    of    change    upon    li- 
cense   tax 402 

municipal,    development 158 

municipal,    competitive,    162 

order   new   plan   of,    78 

outlying    district,    effect    of    topogra- 
phy  149,  150 

plan  of, 151,  Ta.     26 

problem    involved,     141 

saving   by   changes   in,    156 

Terminal  district,  basis  of  changes  in,  145 
diversion  from  Market  to  Mission,  143 

plan  of,  changed 145,  Ta.     26 

principles    of,     :  . .   142 

temporary    only,     143 

Rules,    operating 173 

Running    time  : — Variations    in 170 

effect  of  Twin   Peaks  tunnel  on,   PI.     17 
Rush    hour : — Additional    service    dur- 
ing,     156,   Ta.    27 

car   distribution   during PI.       6 

condition  at   Ferry,    298 

effect   upon    working  day,    100,  387 

magnitude    of    problem 100 

ratio    of    service    during,    to   midday, 

100,  113 

service    ratio    during,    113 

statistics   of   traffic,    109,  110 


Sacramento   street : — Recession   of  cor- 
ner at  East  street  127,  285,  311 

Safety : — Limits  headway  on  grades,   . .     59 
Safety    stations  : — Correct    position    for 

seats,    127 

effect  of  exit  gate  location  on,   ..191,  206 

not  many  necessary  inbound, 441 

present  and  proposed,   130,  132,  441 

seats  impede  loading 127 

San   Bruno   avenue : — Widening  of,    . .  285 
San     Francisco : — Business    and    social 

center,     5 

climatic   conditions,    7 

develop  its  own  territory  first,  4 

early  settlement 411 

growth   in   poulation,    . .    Ta.    1,   Ta.      2 

history  of  transportation  in,   411 

one-third    unpopulated 3 

population    density   by   assembly   dis- 
tricts,        Ta.      3 

topography   of Frontispiece,  273 


San  Francisco  &  San  Jose  R.  R. : — First 
operation   over 414 

San    Francisco    &    San    Mateo    R.    R. 

Company: — Builds  first  electric  line  417 

San  Francisco  Electric  Railway: — Ex- 
tension method  not  available 80 

San  Francisco  Market  Street  Railroad: 
— See  Market  Street  Railroad. 

San  Jose  avenue : — 

municipal  route  on, 162 

regrading    of,    273 

San  Mateo  line: — Rerouting  of.   ...147,  153 

Sansome  street  rcgrade,    290 

Sash  : — Fixed    undesirable 194 

raise  vs.   drop,    179,  194 

Saturation   point : — Effect  on   earnings,  29 

Schedule : — Check   on,    105 

encourage  fast 170 

operated,  all  companies,  Ta.  24 

Scott  Street : — Municipal  route  on 162 

Seasonal  variation : — In  city  traffic,    . .   100 
in  transbay  traffic, 300 

Scats : — Proportions   of,   municipal   car,  187 
proportions  of,  U.  R.  R.,   187 

Seating  arrangement : — Best,    184 

"California"   type   cars,    198 

municipal   cars 179 

on   class   1500 207 

on  class   1550 207 

on    class    100,    208 

Seat    mileage : — Basis    for    calculating 

taxable   receipts,    407 

Securities  : — Sec  also  Bonds,  Stock. 
United    Railroads,    321 

Service  : — Additional    required,    

154,  156,  167,  Ta.  27 

analysis    of,    112 

analysis    of   outbound    throat    counts, 

Ta.  23 

car  location  map PI.  6 

comparison   of,   past   and   present,    . .  104 

criterions   of,    154 

determinations    of,    9 

frequent  analysis  of,  by  technical  staff,  78 

irregularities  in  headway 110 

make  resolution  regarding 78 

midday,    156 

monthly  record  of,  U.   R.   R Ta.  50a 

owl •  ••  •  158 

on  fifteen-minute  and  hourly  basis,..  154 

ratio,  rush  hour  to  midday 100,  113 

redistribution     of,     rush     hour : — See 

also  Redistribution  of  Service   .... 

153,    Ta.  26 

requirement  to  1920,   Ta.      6 

shuttle   for  outlying  districts,    45 

standard  should  be  high 166,  360 

summary  of  throat  counts Ta.»  22 

summary  of  trip  counts Ta.    25 


INDEX 


465 


Service: — 

taper  off  by  short  runs,  165 

terminal    district,    155 

under   resettlement 378 

Service    capacity :— Present    equipment,     17 
Service  standard :— For  long-haul  traf- 

fie,    154 

midday,    1^6 

Seventh      avenue      extension :— Advan- 
tages of,    •  236 

connection   with   Twin    Peaks  tunnel,  227 

future  cross-town  line  on 242,  258 

station  arrangements  for 257,  258 

widening   of,    290 

Shelters  :— Along    Market 138 

Shop :— Adequacy  of  U.  R.  R 340 

Short-haul  traffic  :— Benefit  to  U.  R.  R.,  360 

trippers  for,    1^0 

Short  runs:—  See  also  Trippers. 
on    Mission,    J^^ 


on   Sutter, 


152 


saving  by •  •  •  •  ^^ \i^ 

to  relieve  lower  Market  Street,  .....    1^4 
Shuttle  service  :— For  outlying  districts,    45 

Sidewalks  :— Effect  of  wide 1«5.  189 

reduction  in  width  of 284,  Ta.     32 

Signals  :— At  ferrv  terminal 312 

in   Twin   Peaks   tunnel,    245 

Signs:-"Car  fiiP." 173 

changing    of 174 

Sinking    fund :— Cannot    retire    debt    in 

short  term 363,  380 

comparative   contributions  to,    327 

effect  of   city   assuming   debt   at   ex- 
piration,     ••, 385 

invest   in   railroads   securities,    o»z 

insufficient    at   present,    80 

limitation   of   5-cent   fare   upon 381 

new  franchises,  provisions  for, 375 

on  U.  R.  R.  4's 317 

operation  of.  in  resettlement  plans,  . . 

^ 87.  89.    90 

statement    of Ta.     38 

Smokers  :— Stand  by  preference 107 

Southern   Heights  and  Visitacion   Val- 

ley  R.  R.   Co. :— Incorporated 418 

Southern      Pacific :— Electrification      of 

for  interurban  service 71 

Special    work  :— Amount    of 343 

at  Fillmore  tunnel  portal •  .   ^^\ 

•   condition  of,    339,  344,  Ta.     54 

Specifications :— For  municipal  car,  179,  445 

Speed  :— By  lines,   Ta.     lb 

effect  of  stops  on,   J^^ 

increase  in,  during  midday, J3» 

increase  in,  justifies  more  service,   ..    10^ 

increase  in,  since  1905 JO^ 

limit  down  grade, J^^ 

low,  in  terminal  district 


Speed:—  . 

requirements  for  good  operation,   ...    l/U 

schedule •■•   ^^ 

typical  on  various  streets la.     iv 

Squares,  law  of:— Effect  of  rapid  tran- 

sit  on,   

effect  of  saturation  point  on,  . . . . .  .^     29 

Stanchions :— Platform,  moving  of,  199,  ^ 
Standing :— Best  location  of  space   for,  184 

extent  of  load 164,  165 

preferential •: J^ 

Stations:— Market  Street,  traffic  at,  ...   1^3 

Sutter  Street,  traffic  at 124 

Steam  roads :— Electrification  of,  .....     71 
Steps  :— Folding    recommended,    . . .  194,  199 

height   of 1^ 

projecting,   undesirable ••••  ^ 

St.  Joseph's  .\venue :— Relocation  of,  . .  288 

Stock  : — Dividends  on 325 

first   preferred   issued   after   fire   and 

strike     «5Z^ 

new,  cannot  be  issued  below  par,   ...     80 

outstanding,  U.  R.  R., ^^'  ool 

Stockton  tunnel :— Dimensions ^^3 

municipal  routes  via,  159 

urgency  of 21° 

Stops :— Effect  upon  speed,   J^J 

far-side  for  cable  cars,  •  •  •   173 

indicate  location  of,    136,  \7l 

limited,    •  •  • ]i^ 

near-side,  necessary  on  Market  Street.  13o 

plan  of,  lower  Market  Street •  441 

reasonable  spacing  of,   103,  172 

too   frequent • ••  •   .9? 

two-car  at  congested  points,  130.  136.  170 

typical  spacing  of 1'2 

Street  and  district  improvements, 271 

Street    layout :— Causes    Market    Street 

congestion,    1^ 

improved,    ;p'  * : ' 

provide    grade    separation   on   Twin 

Peaks  tunnel  line •.  •  •  •  •  •  245 

resubdivision      sometimes      desirable, 

44,  290 

Streets :— Business,   sections  of ^ 

cross-sections   of 282 


186 

286 


ordinance  limitations. 


102 
170 


diagram  of  sections,    

extensions   of,    

hillside,    287 

narrow,     ifX 

new,     ^ov 

vehicle  clearances  on ^1 

widening  at  tunnel  portal,    ^ 

widenings, •   285 

width  of,  limits  capacity  to   Exposi- 
tion,      •     59 

Strike :— Additional    securities    necessi 


tated  by. 


322 


effect   upon   traffic ;:;-v,V  Hi 

effect  upon  U.  R.  R.,  316,  331,  420 


1 1 


ill! 


5? 


i  i 


I  i 


1 


;  i 


H 


(1.1 1 


466 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Strike: — 

first  carmen's,  1906 420 

second  carmen's,  1907,   420 

Structures,  fixed  in  streets : — Decap- 
italization  of,   379 

Stub  terminals : — Capacity  of,    144 

car  distribution  at,  145 

in  loading  district,   143 

justified,     128 

with  through  service,  144 

Subdivision  : — Sec  Street  Layout. 

Sub-stations  : — Capacity    of,    348 

Suburban    transportation  : — History   of,  422 
Subways  : — See  also  Market  Street  Sub- 
zvay. 

branch    lines 245 

entrances   to,   through   stores,    253 

for  relief  of  Market  Street 143 

not  now  necessary,  69 

order  of  development,  69 

to  Valencia  Street  desirable, 227 

Subway  stations : — See  also  Market  St. 
extension  tunnel,  Market  St.  sub- 
zvay. 

Eureka  valley, 253,  254 

four-track  sublevel  unit,  section  of,  . .  251 

four-itrack  unit,  section  of 247 

independent  two-bore  type,  section  of,  252 
independent  two-four  track  bore,  sec- 
tion of,    249 

island   platform,    247,  250,  254 

minimum    spacing   for    rapid    transit,  255 
side  platforms  in,  253 

Sunnyside  : — Terminal  changed,    148 

Sunset      district :— Adequate      utihties 

would  develop,   7,    24 

cars  to,  routed  via  Mission, 151 

service  to,   151 

street   changes   at   north   entrance  to,  285 

Supervisors,  board  of: — Can     buy     or 

construct  utilities,    365 

regulative   powers    of 365 

retain   functions   of   franchise   grant- 
ing,    78,  390,  431 

to  advertise  for  bids  on  extensions,  .  370 
Sutter-Jackson    line  : — Cannot    be    ope- 
rated at  tunnel  entrance,   152 

replaced  by  Ellis-Jackson 147 

Sutter   Street : — Cars   cannot   use   inner 

Market  Street  tracks 122 

service   to   ferry 125,  147 

short-run   line  on,    152 

throat,  traffic  characteristics  of,   110 

Sutter  Street  Railway  Company: — 414 

changed  to  cable, 416 

extensions   to,    415 

Sutro  Railroad  Company 418 

Switches  : — Electric,     173 


T 

Tandem  operation: — Saving  by,  ...136,  170 
Tangible     value  : — Decapitalization     of, 

82,  363 

Taxable   receipts: — General  principles,.  401 

method  of  computing,   401,  405 

originating  traffic  basis,   405 

present  basis,   402 

problem  involved,   402 

recommended    method    of    computa- 
tion,      406 

settlement   of,    407 

viewpoints 403 

Taxes  : — Analysis   of,    326 

average  franchise, 393 

comparative  record  of,   327 

franchise,  not  accurately  fixed,  395 

low  in  San  Francisco,  318,  328 

proportion  to  state  and  citv,    326 

record  of,  U.  R.  R.,  .' Ta.  41 

Telegraph  hill : — Advisability  of  tun- 
nel under 275,  277 

Telephone  calls  : — Annual  record  of,  27,     28 
Tenth-Montgomery    line  : — Rerouting 
of,    148 

Terminal  district : — Loops  or  stubs  in,  143 

low   speed   in,    102 

rerouting   in,    142 

traffic  and  service  in 95 

Terminals  : — See  also  Ferry  Terminal; 
Stub   Terminals. 

alternative  plans  for,  143 

at  depot 148 

downitown   for   municipal   system,    . .   162 

Exposition  : — Available    sites,     66 

common  use  of,  desirable,  67 

distribution  of  traffic, 67 

entrances 64 

maps  of, 65 

platform  arrangements  at 67 

for  Twin   Peaks  tunnel,  independent 

of  U.  R.  R.  lines, 264 

lack  of,  on  Polk  Street  line 55 

lack  of,  on  municipal  system.    160 

plans   for  Panama-Pacific  exposition, 

64,  65,    66 

storage  ground,  and,  for  Twin  Peaks 
tunnel,   235,  264 

Third  and  Townsend : — Becoming  less 
strategic 74 

Third  rail  collection : — For  rapid  tran- 
sit   cars, 260 

Throat  counts: — Description  of 9,  109 

typical,   graphical   analysis   of,    ...  PI.       7 

results  of,   110 

points  of,   112,  Ta.    21 

summary  of,  outbound Ta.     22 

Through  routes : — Over  lines  of  two 
companies,     161 


INDEX 


467 


Time:— 5"^^  Running   Time. 

Time  schedule :— Average  day,    319 

characteristics 319,  330,  386,  Ta.    45 

charter  limitations 387 

effect  of  rush  hour, 369,  387 

effect  of  time  limit •  319 

Time  zones: — Extended  by  more  logi- 
cal routing,  170,  PI.      3 

extended  by  Twin  Peaks  tunnel,   ...  265 

fix  limits  of  thick  settlement, 4 

map  showing PI-      3 

Topographv :— Effect  on  routing,  ..149,  150 

necessitates   tunnels,    o 

of  San  Francisco, Frontispiece,  273 

Track  :— Adequacy  of,   ...  .342,  Ta.     54 

classification  of,  by  condition 

342,   343,   Ta.    54 

for  outlying  extensions,  44 

much   deferred   maintenance,    317 

necessary       rehabilitation       of,       by 

streets,    Ta.    54 

standards   of  construction,    Ta.     54 

summary  of  rehabilitation,   337 

Trackage  : — Map  of,   PI-       1 

terminal  district,    155 

U.  R.  R.,  used  under  five-block  law,  160 
Track    centers: — Establish    new    stand- 
ard of ;-. •   187 

for    exposition    lines,    municipal    and 

U.  R.  R.  cars,  68 

standard,    1^^ 

Track  mileage  : — Growth  of,    

17,  31,  32,  Ta.  8,  Ta.  50b 

present,  inadequate,   33 

relation  to  car  mileage,  332 

requirements  within  next  decade,  17,    33 
should  increase  as  population,   ...17,    33 

statement  of,  U.  R.  R.,   Ta. 

Traffic:— ^rf-   also   Rush   Hour;   Com- 
muter Traffic. 

analysis   of,   by   technical   staff, 

analysis  of,  outbound,    .Ta. 

at  Sutter  and  Market  Street  stations,  123 

comparative,   by  routes,    166,  167 

daily  load   curve, ,  99 

exposition,  see  Panama-Pacific  Expo- 
sition. 

fluctuation  in,   98,  166 

growth  in,    331,  333 

monthly  record  of,  U.  R.  R Ta.  50a 

passenger  flow,  . ....107,  108,  PI.      9 

rush  hour  variations  in,   HO 

seasonal  variation  in,  166,  171 

statistics  of  by  years,  U.  R.  R.,  -  -Ta.    48 

statistics  of,  rush  hour,   109 

summary  of  throat  counts,   Ta.    22 

transfer,  variations  in 331 

trip  counts,  analysis  of,  PI.  8a,  b,  Ta.    25 

two  classes  of,  191 

Traffic    and    service    improvements:— 
General  discussion,  165 


54 


78 
23 


Traffic    counts  :—5rc     Throat    Counts, 

Trip  Counts. 
Traffic   regulations  : — See  also    Vehicle 
Traffic. 

amendments  to,  292 

necessary  at  ferry,   299 

Traffic     routes  : — Low-grade,    Mission- 
Harbor  View  necessary, 219 

grade  hmits  for, 219 

Traffic  squad: — See  Vehicle  Traffic. 
Trailers: — Not    considered    in    Exposi- 
tion  estimates,    62 

Trainmen  : — See  Platform  Men. 
Transbay  traffic: — Comparative,   week- 
day and   Sunday,    304 

growth  in, 299,  301 

hourly  variation  in,    300,  303 

seasonal  variation  in,   300,  302 

Transfer  points : — Cars  to  wait  at, 174 

Transfers  : — Chart    showing    privileges,  169 

growth   of  traffic,    333 

lack  of,  handicaps  municipal  system,  160 

on  cross-town  line,  168 

recommendations    for,    168 

record  of  traffic Ta.     48 

relation  to  tax  calculation, 404 

system    liberal,    9,  168 

traffic,  bv  lines,  167,  Ta.    25 

Transit     development : — See     Develop- 
ment. 
Transit    policy: — Clear    streets    of    un- 
used  franchises,    11      78 

for  the  city 78 

t^lan  of  procedure,   77 

time,  for  city  to  establish,  definite,  . . 

11,  48,    79 

Transit  system  : — Development  of,  Ch.  3, 
see  Extensions. 

Transportation  : — General   map,    PI.  2 

history  of  development  of,    411 

must  precede  settlement,    6 

relative  record  of  cost,   327 

Trip    counts : —    9,  165 

summary  of  results  of,    Ta.    25 

typical,  graphical  analysis  of,   . .  PI.  8a,  b 

Trippers  : — Short  haul,   150 

Trucking, 119 

Trunk   lines: — Franchises    expire    1929,    80 

uniform  headway  on,   145 

Trust    deed:— U.     R.     R.    4's    loosely 

drawn,    317 

prohibit  stock  sale  below  par,   80 

Tunnels: — See  also  Market  Street  Ex- 
tension  Tunnel. 

combined  traffic  and  transit, 219,  270 

Exposition  extensions  with,   63 

Folsom  Street 278 

into  Harbor  View,  necessity  for,  .  .53,    79 
into  Harbor  View,  capacity  of,   ..Ta.     15 
into      Harbor      View,      comparative 
data,   Ta.    30 


M 
n 


i 


IB 
f  : 


468 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


INDEX 


469 


Tunnels : — 

Noe  Valley  ,.. 277 

obvious  necessity  for,   273 

projects   investigated 217 

Telegraph  Hill,   275 

Twentieth  Street,   279 

under   Alamo    Square,    279 

Tunnels     into     Harbor     View : — Dam- 
ages incident  to, 224 

high-level,   approach   grades   of 219 

necessity  for  low-level,   218 

type   of  bore, 219,  220 

time    required    to    build,    224 

unit  cost  estimates,   224 

walkways   in 219 

Turk- Eddy  : — Replaced    by    Ellis-Rich- 
mond  147,  151 

Turntables  : — Elimination  of,    200 

Twentieth  Street : — Tunnel, 279 

regrade 290 

Two-line       vehicle       traflfic  : — Diagram 

showing 186 

in  tunnels 221 

necessity  for 185,  279 

present   conditions,    281 

Twin  Peaks  tunnel  line  : — Sec  also  Mar- 
kct  Street  Extension  Tunnel. 

grade    separation    on,    265 

effect  on  local  running  time, 72,  228 

municipal  cars  cannot  reach  directly,  160 
routes  via,  161 

u 

Underground   conduit: — U.    R.    R.,   not 

utilized 349 

Underlying  bonds  : — Sec  Bonds. 

Underlying  companies,    320 

Unfunded  debt : — Insecurity  of,  82 

Unified  system  : — Map  of,   ; . ,     43 

one  city,  one  fare,  universal  transfers 

desirable, 10,    39 

subdivided   into   private   and   munici- 
pal systems,   41 

ultimately  municipal,   under   resettle- 
ment,      378 

unified    plan    of    service    to    Exposi- 
tion, no  tunnels,   61 

with   rental  plan,    161 

Union    station : —    75 

Union    Street: — Improvements   in   cars 

on 210 

capacity  of  cars  on 210 

low-level  route  over 57 

municipal  route  over,   1S9 

only  line  to  western  side  of  Exposi- 
tion      57 

possible  extensions  to,  57 

profile  of,    56 

worst  line  for  grades 57 

Unloading: — Methods    for    facilitating,  199 


United     Railroads  : — Accident     account 

of,    Ta.    49 

appraisal  of  property  of,    78 

bonded  and  other  debt  of Ta.    35 

capital   investment  of,   1911,   Ta.    36 

capital   liabilities   of,    321 

comparative  general  balance  sheet  of, 

Ta.    33 

conditions  confronting, 80 

condition  of  property  of Ta.     54 

controls  best  streets, 160 

dividends,  record  of,   Ta.     40 

effect  of  fire  and  strike  on,  316 

electrification   of, 420 

financing  of 429 

franchises  claimed,  1902 PI.    20 

franchise    obligations    on,    326 

franchises    of,    Ta.     55 

franchises  of,  expirations,    PI.    22 

incorporation  of, 321 

negotiate  settlement  with 78 

1912  motor  car,  see  Cars. 

no    funds    for   extensions, 361 

no  provision  for  contingencies, 316 

operating  expenses  of,  bv  years 

Ta.  41,  Ta.  42,  Ta.    43 

operating  methods  of,  168 

organization   of,    420 

passengers  carried  by, Ta.    49 

possibly  no  extensions  by,  without  re- 
settlement  38,    81 

probable  views  on  resettlement,   ....   389 

results,  no  resettlement,    81,    83 

resettlement  solution  of  difficulties,  . .     91 
securities    of,    authorized    and    out- 
standing,     Ta.     34 

share  of  income 337,  Ta.     53 

share  of  income,  under  resettlement, 

Ta.  56,  Ta.    57 

status  of  franchises  of PI.     21 

trackage,  map  of,    PI.       1 

track   mileage,   growth   of Ta.  50b 

traffic  and  service  statistics  of,   ,.Ta.  50a 

underlying   companies,    •••; •••  320 

unexpected  financial  condition  of.   . .  362 
Utilities : — Controlled    by    Public    Ser- 
vice Commission 77 

in  Twin  Peaks  tunnel,   261 

lack   of,    3 


Valuation: — Agreed   capital,   for   reset- 
tlement,      383 

basis  of,  .  -. 383 

Valencia-Gough  line: — Extension  of,..   153 

Valencia  street  line  : — Ultimately  paral- 
leled,        147 

Value,  intangible  : — Amount  of 383 

capital,  in  resettlement  plan,  384 

definition  of,  86 

minimum,    384 


Van  Ness  avenue :— Car  line  on,  

extension  of,    

four-line  traffic  on,  • .  ••••••  •  •  • 

parking  plans,   52,  291,  PI. 

route  via •  •  •  • 

Vehicles  :— Width  of,    279,  280, 

Vehicle  traffic: — 

amended    regulations    for,    

at  Fourth  and  Market  streets,  

count  of,    •  • 

decrease  on  Market  street  by  regula- 
tion,     

impractical  in  Twin  Peaks  tunnel,   . . 

regulation  of,   102,  111, 

volume  of Ta. 

through  Bernal  Cut,   •  •  •  • 

Ventilation :— In  tunnels 245, 

municipal  cars, 

United  Railroads  1912  car, 

Viaduct : — Across    Islais    creek,    

Visitacion    Valley :— Adequate    utilities 
would  cause  growth,  

w 

Wages  : — See  also  Time  Schedules. 

apportionment    of    ••,••;• •••   ^g^ 

charter  provisions  prohibitive,  ...^oz,  ^5/ 

charter  should  not  fix,   •  •  •  363 

distribution  of,    1  ^-    ^ 


45 

286 

64 

18 

159 

294 

292 

116 
102 

119 
229 
119 

18 
272 
263 
179 
194 

45 

24 


Wages:— 

effect  of  minimum,    ^i^ 

high  in  San  Francisco,   386 

increase    since    1908 329 

limitation  of  fixed  fare  upon,  .... ...  387 

minimum,  fixed  in  charter,  365.  387,  420 

not  fixed  in  Amendment  34, 362,  369 

of  platform  men,  high,   318 

on   omnibus   lines 412 

scale   of,  platform  men,    Ta.    46 

to  be  adjusted  by  Commission, 377 

Wagons  :— Width  of,    279.  280 

Water  system :— Effect  of  purchase  on 

bond  limit,    79 

White  posts :— To  indicate  stops, 172 

Width  of  car: — 

municipal,    ^■^ 

United  Railroads,   lo^ 

Width  of  streets  :—5'rr  Streets. 

of  vehicles,   27 

Y 

Yellow  line  omnibus,   411 

z 

"Z"  lines :— Undesirable,    |30 

Zones   of   loading,    ^^ 


m 


470  SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


INDEX  OF  EXHIBITS  ACCOMPANYING  REPORT 


INDEX 


471 


TABLES  IN  TEXT 

Page 

Financial    summary   of   future    growth ^ 

107 
Standing   by  preference         _..--- 

Market  Street  speed  and  car  distribution  characteristics        -      -      -      -  121 

Relative  volume  of  travel.   Market   Street  stations 123 

Relative   volume   of   travel,    Sutter    Street    stations 12^ 

Capacity  of   stub   terminals 1^ 

Routing,    Municipal    system— non-competitive      -------  159 

Routing,   Municipal   system— competitive -  162 

Stops  per  mile,  typical  districts ^^^ 

Differences  in  design— Municipal  and  United  Railroads  car        -      -      -  182 

Schedule    of    rolling    stock ^00 

Relative    weights    of    equipment ^08 

Tunnel   dimensions 

Percentage   distribution  of  income   -      -      - 323 

Dividends   paid ^^^ 

Classification  of  taxes _.--.  326 

Summary  of  track  condition 343 

Paving    condition      ----- _.--  345 

Schedule  of  franchise  expirations 400 


1. 
2. 
3. 
4. 
5. 
6. 
7. 
8. 
9. 


TABLES  IN  APPENDIX 

Growth  in  population.  Pacific  Coast  cities,  1880-1910. 

Growth  of  Commuter   District  communities   1860-1910. 

Density  of  population  in  San  Francisco,  by  districts. 

Analysis  of  growth  in  manufactures,  Industrial  District,  1900-1910. 

Prediction  of  street  railway  earnings  to  1950. 

Prediction  of  service  requirements  to  1920,  United  Railroads. 

Growth  of  car  equipment  by  class,  1898-1912. 

Growth  of  street  railway  track  mileage,  1860-1911. 

Cost  of  recommended   railway  extensions  to  unified   system. 


17 


10.  Railway  extensions,  description  of  location. 

11.  Extensions,  detail  of  mileage  and  grades. 

12.  Municipal   competitive    system— additional    extensions. 
13  Private  competitive  system— schedule  of  extensions. 

14.  Improvements  in  City  Plan  for  complete  transit  system. 

15.  Exposition  service,  capacity  of  lines  and  tunnels. 

16.  Exposition   routes   recommended    (without  tunnels). 

17.  Exposition  routes  recommended   (with  tunnels). 

18.  Volume  of  vehicle  traffic  at  street  intersections. 

19.  Operating  speed  for  main  thoroughfares,  typical. 

20.  Car  loading  standards  for  electric  equipment. 

21.  Observation  points  for  cordon  or  throat  counts. 

22.  Throat  counts,  analytic  summary  of  rush  hour  service. 
*23.  Throat  counts,  analysis  by  routes  and  throats. 

24.  Operating  schedules,  all  railway  companies,  June  30.  1912. 

25  Trip  counts,  by  individual  cars,  and  summary. 

26.  Routing  and  service  distribution  recommended,  United  Railroads. 

27.  Additional  rush  hour  service  now  required. 

28.  Average  length  of  passenger  ride,  by  routes  and  total. 

29.  Rolling  stock  schedule,  by  class.  United  Railroads. 
30  Harbor  View  tunnels,  comparative  location  data. 

31'.  Twin  Peaks  tunnel,  comparative  location  data,  various  projects. 

32  Changes  in  sidewalk  widths  recommended. 

33:  General  balance  sheet.  United  Railroads.  March  20.  1^2-  une  ^,    9    - 

34  Authorized  and  outstanding  securities.  United  Railroads,  June  30,  1912. 

35.  Bonded  and  other  debt.  United  Railroads  June  30.  1912. 

36.  Capital  investment,  United  Railroads,  June  30,  1912 
37*.  Bond  discounts  and  premiums.  United  Railroads. 

38.  Sinking  funds,  investment  record,  United   Railroads,   1905-1912. 

39.  Betterment  account,  United  Railroads.  1902-1912. 
40  Dividend   record,  United   Railroads,   1902-1912 

41.  Income  account  analysis,  per  cent  distribution.  United  R.  R.,  1900-1911. 

42.  Operating  expense  distribution,  United  Railroads,   1903-1911. 

43'.      Operating  expense,  analysis,  per  cent  of  gross  earnings,  U.  R.  R.  1902-11. 

44       Labor  charges,  distribution,  United  Railroads,  1909-1911. 

AS.      Working  day  for  trainmen,  classification  by  hours.  United  Railroads. 

46.  Wage  scale  of  carmen.  United  Railroads,  1902-1912. 

47.  Power  consumption  and  costs.  United  Railroads,  1907-1911. 

48.  Traffic  statisitics,  United  Railroads,  1901-1911. 

49.  Accident  account  analysis.  United  Railroads.  1908-1911. 

50a.    Monthly  traffic  record,  car  miles,  United  Railroads,  1902-1912. 
50b.     Growth  of  single  track  mileage,  United  Railroads,  1901-1912. 

51.  Earnings  and  expenses  per  car  mile,  electric  and  cable,  U.  R.  R.,  1908-11. 

52.  Derived  operating  statistics,  by  units.  United  Railroads,  1902-1911. 


i  I 


II 


472 

53. 
54. 
55. 
56. 
57. 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 

Profit-sharing  record  and  investment  supported,  U.  R.  R.,  1900-1911. 
Condition  of  property,  results  of  inspection,  all  companies,  1912. 
Railway  franchise  expirations  of  record. 
Analysis  of  resettlement  plans,  Charter  Amendment  34. 
Ultimate  financial  results  of  resettlement  plan  No.  5. 


INDEX 


473 


ILLUSTRATIONS  IN  TEXT 

Figures  Page 

A.  Street  congestion  in  San  Francisco.  }       Frontispieces 

B.  Distribution  of  population,  and  railway  lines.  > 

1.  Prediction   of   future   population         _--_---.      19 

2.  Limiting  rates,  analysis  of  population  growth 21 

3.  Territorial  growth  of  San  Francisco        -------24 

4.  Commercial   growth   of   San    Francisco 27 

5.  Mathematical   analysis — law    of   growth 30 

6.  Growth  of  track  mileage  in  San  Francisco      ------      32 

7.  Growth  and  change  in  car  equipment 34 

8.  Principal  extensions  suggested  for  transit  system        -      -      -      -      40 

9.  Extensions  recommended  for  unified  system        -----      43 

10.  Competitive  municipal  system  extensions 47 

11.  Five-block  joint  trackage   study -48 

12.  Existing  lines  to  Harbor  View 50 

13.  Contour  map  of  Harbor  View  district     -------54 

14.  Presidio  &  Ferries  line,   (Union  Street)   profile        -      -      -      -      56 

15.  Unified  trackage  plan   (without  tunnels) 61 

16.  Unified  trackage  plan    (with  tunnels) 63 

17.  Detail  of  Exposition  terminals  plan 65 

18.  Bernal   Cut,  map   and  profile        - 72 

18a,  b    Alternative  alignments  to   Bernal   Cut         ------     -73 

19.  Relocation  of  Union  Station --.75 

20.  Possible  future  United  Railroads.    Bonds  and  earnings         -      -      83 

21.  Proportional  distribution  of  income  to  City,  Company,  and  Labor      84 

22a,   b,   c    Financial   results  of  ^                                            q-    q^    ^. 

Resettlement  plans— 2,  5,  5A    { ^^'  ^^'  ^^ 

23.  Typical   daily  traffic  load   curve 99 

24.  Typical  rush  hour  load  curve        -.- 101 

25.  Passenger  flow,  outbound  during  evening  rush  hour        -      -      -     108 

26.  Variation  in  service  standards  during  rush  hour        -      -      -      -     114 

27.  Vehicle  traffic  flow  at  Fourth  and  Market  Streets      -      -      -      -     116 

28.  Car  congestion,  effect  on  speed,  lower  Market  Street        -      -      -     120 

29.  Car  loading  speed,   comparative   study     -------     126 


Figures  ^^^^ 

30.  Alternative   four-track   plans   for   lower   Market    Street         -      -  128 

31.  Possible  arrangement  of  safety   stations         ------  131 

32.  Safety  car  stations  recommended  for  Market  Street        -      -      -  132 

33.  Car  step  clearances,  existing  and   recommended         -       -       -       -  133 

34.  Carrying  capacity  of  terminal  lines— PlanA         -----  134 

35.  Carrying  capacity  of  terminal  lines— Plan  B         -----  135 

36.  Key  sheet  for  four-track  plans  for  lower  Market  Street        -      -  139 

37.  Rerouting  for  terminal  district,  as  recommended        -      -      -      -  146 

38.  Trackage  and  service  existing,  terminal  loading  district      -      -  155 

39.  Loading  characteristics  of  typical  routes        -      -      -      -      -      -  157 

40.  Loading  zones  and  extent  of  standing  load         -----  164 

41.  Traffic  and  car  mile  record  by  routes,  July,  1912       -      -      -      -  167 

42.  Transfer  system,  graphical  record       --""'""'  ^ 

43.  Seasonal  variations  in  traffic,  typical  routes      -      '      '      ~      '      '  \1 

44.  Municipal  Railway  car,  Geary  Street 

180 

45.  Detail  Views  of  the  Municipal  car     ------""  ^°" 

46.  Street   sections,    existing   and   recommended 186 

47.  Car  clearances  on  curves,  existing  and  recommended        -      -      -  189 

48a.  Effect  of  entrance  width  on  car  loading  speed 1^ 

48b.  Terminal  car  loading  time,  front  and  rear  entrances        -      -      -  203 

49-51.  Harbor  View  tunnel  sections,  Fillmore  and  Broadway     -       -       -  220 

52.  Eureka  Valley  from  the  heights  ---------  232 

53.  Twin  Peaks  tunnel— contour  alignment  study        -      -      -      -      -  233 

54.  View  of  contour  extension  of  Market  Street.  Perspective      -      -  234 

55.  Laguna  Honda  station — perspective  view         ------  237 

56.  Four-track  subway  standard  section        -------  247 

57.  Independent  sub-level  three-bore  subway  section        -      -      -      -  249 

58.  Four-track  sub-level  unit  section 251 

59.  Independent  sub-level  two-bore  section 252 

60.  Eureka  Valley  station,  high-level  project 254 

61.  Laguna  Honda   station,  first  stage     --------  256 

62-3  Laguna   Honda   station   second   stage -      -  257 

64.  Arch  roof  section  of  rapid  transit  tunnel 259 

65.  Flat  roof  section  of  rapid  transit  tunnel        -      -      -      -     -      -  259 

66.  Mission- Sunset  two-level  tunnel  cross-section   (in  rock)         -      -  267 

67.  Mission-Sunset  tunnel  cross-section  (through  earth)         -      -      -  268 

68.  Combined  traffic-transit  tunnel  cross-section         -----  268 

69.  Mission- Sunset  two-level  tunnel  portal  arrangement        -      -      -  269 

70.  Contour  and  slope  map  of  San  Francisco        - 273 

71.  Bernal  Cut,  development  for  traffic  and  rapid  transit       -       -       -  274 

72.  Hayes  Street  cut  profiles        - 276 

73.  Noe  Valley  tunnel  at  Chattanooga  Street        ------  278 

74.  Vehicle  traffic  and  widths,  typical  street  intersections      -      -      -  280 

75.  Present  traffic  conditions  of  city  streets        ------  281 

76-7    Thoroughfare  cross-sections,   existing  and   recommended      -      -  282 

78.  Arcade  plan  of  street  widening  at  tunnel  portals        -      -      -      -  283 

79.  Union   Square  auto  stand        ----------  284 


474 


SAN  FRANCISCO  TRANSPORTATION  FACILITIES 


Figures  Page 

80.  Hillside  street,  recommended  treatment 287 

81.  Sansome  Street  regrade — isometric  view         ------  291 

82.  Park  crossings,  alternative  plans 293 

83.  Ferry   loop   Plaza   during  evening   rush   hour 298 

84a.  Growth  in  San  Francisco  commuter  travel,  1903-1911       -      -      -  301 

84b.  Typical    seasonal    variation,   transbay   travel 302 

85.  Hourly  travel  to  Alameda   and   Marin   Counties         -      -      -    -  303 

86.  Daily  and  hourly  variation  in  one-way  transbay  travel       -       -       -  304 

87.  Boat  arrivals  and  car  service  on  the  Ferry  loops        -      _      _      -  306 

88.  Corporate    relationship    ("Family   tree") 320 

89.  Income   distribution,  graphic   analysis,   1900-1912         -      -      -      -  324 

90.  Operating   expenses,    comparative    distribution,    1901-1911       -      -  327 

91.  Time  schedule  characteristics,  platform  labor 330 

92.  Growth   characteristics,   service   and   income         -----  332 

93.  Monthly  growth  of  system,  traffic  and  earnings,  1902-1911       -      -  333 

94.  Car  hour  ratios,  earnings  and  expenses,  1905-1911     -      -      -      -  335 

95.  Proportional  returns  to  City,  Company  and  Labor,.  1900-1911       -  336 

96.  Car  overhauling— monthly  record,  U.   R.   R.,   1910-1912        -      -  352 

97.  Car  painting  and  varnishing,  U.  R.  R.,   1908-1912      -       -       -       -  353 

98.  Car  maintenance  expenditures,  U.  R.  R.,  1907-1912    -      -      -      -  354 

99.  Profit-sharing   range,    City,    Company   and    Labor      -      -      .      -  388 

100.  Franchises  granted  since  the  consolidation  of  1902      -      -      -      _  395 

101.  Franchises  remaining  after  1929,  U.  R.  R. 398 

102.  Railways   operated   in    San   Francisco,    1864-5      -----  413 

103.  Railways    operated    in    San    Francisco,    1893-5       -----  419 


ADDITIONAL  PHOTOGRAPHS 

Typical   Ferry   loop   conditions,    1905      ---------  140 

Possibilities  of  car  reconstruction,  electric  and  cable 214 

Clay  Street  cable  "train,"  Geary  Street  Steam  Dummy        .      -      -      -  4I6 

Typical    omnibus,    1862    -- 423 

Typical    horse-cars,    1860-1870 424 

Standard  Market  Street  cable  car  before  fire      -------  425 

Typical   early   electric   equipment      ----------  427 


PLATES  IN  APPENDIX 

Plate 

1.  Operating  trackage  map.  United  Railroads  and  other  lines. 

2.  Transportation  map,  San  Francisco  and  Commuter  District. 

3.  Time  zone  map,  San  Francisco  and  Commuter  District. 


INDEX 


475 


4.  Fare  zone  map,  San  Francisco  and  Commuter  District. 

5.  Growth  and  density  of  population  by  districts,  1890-1910. 

6.  Headway  and  distribution  of  cars  during  the  rush  hour. 

7.  Typical  throat  counts  of  rush  hour  passenger  travel. 

8a.  \  Typical  trip  counts  of  rush  hour  car  loading  by  individual  routes, 

8b.  (     showing  comparative  day  loading. 

9.  Passenger  flow  for  the  entire  system  in  rush  hours. 

10.  Recommended  Plan  A,  stops  and  stations,  lower  Market  Street. 

11.  Municipal  Railway  car — general  design  and  arrangement. 

12.  Improvements   recommended   in   existing  rolling  stock. 

13.  Twin  Peaks  tunnel — general  plan  and  profile. 

14.  Twin  Peaks  tunnel — Otis  to  Eighteenth  Street. 

15.  Twin  Peaks  tunnel — Southwest  section. 

16.  Twin  Peaks  tunnel — alternative  development  plans. 

17.  Local  running  time  possible  with  Twin  Peaks  tunnel. 

18.  Railway  parking  plan  for  wide  streets  (Van  Ness  Avenue). 

19.  Ferry  terminal  improvement  plans,  recommended  and  alternative. 

20.  Railway  franchises  claimed  in  1902  and  operated  in  1912. 

21.  Present  status  of  railway  franchise  grants. 

22.  Record  of  railway  franchise  expirations. 


Tables 
land  2 


TABLE   1— COMPARATIVE   GROWTH   IN   POPULATION. 

PACIFIC    COAST    CITIES. 


1900. 

Popula-     %  In 
tion. 

342,782 


1890. 

Popula-    %  In- 
crease,    tion.       crease. 

14.6       298,997       27.8 


1910. 

Popula-     %  In- 
tlon.      crease 

SAN  FRANCISCO..  416,912  21.6 
San    Francisco    and 

traction    district.  728,000  56.2  458,000 

Los  Angeles 319,198  211.5  102.479 

Seattle          237,194  194.0  80,671 

Portland.' 207,214  129.2  90,426 

Oakland 150,174  124.3  66.960 

Tacoma 83,743  122.0  37,714 

Does  not  account  for  area  annexed  during  above  periods 

Authority:    U.  S.  Census. 


12.0 
103.4 
88.3 
94.9 
37.5 
4.7 


409,000 
50,395  350.0 
42.837  1,113.0 
46,385  264.0 
48,6*82  40.9 
36,006 


1880. 

%  In- 
crease. 

233,959       56.5 


Popula 

tiOD. 


11,183  194.5 

3,533  68.6 

17,577  212.0 

34.555  329.0 


i 


TABLE    2— GROWTH    OF 

1910.  1900. 

SAN   FRANCISCO....  416,912         342,782 

Alameda 23,383          16,464 

Albany 808 

Belvedere 481                434 

Benicia 2,360            2,751 

Berkeley 40,434          13,214 

Burlingame 1,565 

Emeryville 2,613            1,016 

Haywards 2.746            1,965 

Larkspur 594 

Martinez 2,115            1,380 

Mayneld 1,041 

Mill  Valley 2,551 

Oakland 150,174          66,960 

Palo  Alto 4.486            1,658 

Piedmont 1.719 

Redwood  City 2,442            1,653 

Richmond 6,802 

Ross  Valley 556 

San  Anselmo 1,531 

San  Jose 28,946          21,500 

San  Leandro 3,471            2.253 

San  Mateo 4,384            1.832 

San  Rafael 5,934            3,879 

Santa  Clara 4,348            3,650 

Sausalito 2,383            1,628 

South  San  Francisco..  1,989 

Vallejo 11.340            7,965 

Unincorporated  places, 

estimated     at     200 

each 2,000      

Total 730,108  492,9'84 

Per  cent  increase 48.0  22.3 

Commuter  district  only  313,196  150,202 

Per  cent  increase 108.7  43.6 

Authority:    U.  S.  Census. 


COMMUTER    DISTRICT. 


1890. 

1880. 

1870. 

1860. 

298,997 
11.165 

233,959 
5,708 

149,473 
1,557 

56,802 
460 

2,361 
5,101 

1.794 

228 
1.419 

1,231 

604 

1,600 

4«,682 

34,555 

10,500 

1,543 

634 
1,572 

1,383 

727 

8,060 

12,567 
1,369 

9.089 
426 

3,290 
2,891 
1,334 

2.276 

841 

6,343 


5.987 


403,677  300,829  173,117 

34.4  73.3  194.5 

104,680  66.870  23.644 

56.4  183.0  1.080 


68.805 
2.003 


Table  3 


TABLE    3— DENSITY    OF    POPULATION. 

BY  ASSEMBLY   DISTRICTS. 

1890. 

Assemibly  District  Population.           Density  per  Acre. 

29 7,211  34.6 

30 9,932  108.0 

31 26,838  224.0 

32 16,588  120.0 

33 13,448  76.4 

34 12,229  37.1 

35 9,748  114.3 

36 9,081  96.0 

37 11,890  142.0 

38 12,424  109.3 

39 13,149  109.7 

40 14,967  73.8 

41 ♦15,253  9.6 

42 20,975  13.7 

43 15,882  16.8 

44 22,046  12.3 

45 14,200  20.2 

46 11,593  20.6 

47 18,386  3.3 

48 20,157  2.7 

Presidio    (estimated)...  3,000  2.8 
•Less  Presidio,  3,000  (estimated). 

1900. 

Assemibly  District.  Population.           Density  per  Acre. 

28 15,731  64.1 

29 15,299  125.0 

30 15,347  127.0 

31 15,871  92.0 

32 14,037  13.7 

33 18,758  6.3 

34 21,841  58.0 

35 17,647  6.1 

36 27,836  3.7 

37 23,923  18.7 

38 19,977  21.2 

^vl  •  •••••••••••*•••••••••  ^iuf^itu  J.0*O 

41 ♦21,235  14.8 

42 15,472  89.0 

43 23.003  140.5 

44 18,631  63.3 

45 12,797  46.8 

Presidio  (estimated) 3,000  2.3 

•Less  Presidio,  3,000  (estimated). 

1910. 

Assembly  District.  Population.          Density  per  Acre. 

28 11,373  -42.2 

29 5.537  34.8 

30 7,558  36.8 

31 18,787  16.4 

32 31,879  10.8 

33 44,688  8.2 

•    34 36,970  34.3 

35 22,388  57.3 

36 12,844  40.5 

37 35,250  69.7 

38 27,925  68.5 

0«7  .••••••«••••••••••*•••  ^Oy^xU  0«U 

4U ZuyUlD  UO.U 

41 25,372  26.8 

42 8,810  39.0 

43 9,379  47.5 

44 21,307  66.0 

45 22,206  64.6 

Presidio  (estimated) 3,354  2.6 

•Less  Presidio,  3.354. 


C 


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Table  5 


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TABLE    5— PREDICTION    OF    STREET    RAILWAY 

EARNINGS.t 

SAN   FRANCISCO   TRACTION   SYSTEM. 

Year.  Population.    Earnings  per  Capita.       Earnings. 

1910 417.000  $18.35  $  7,653,489 

1911 430,000  18.35*                  7,886,136 

1912 443,000  18.96                    8.400.000 

1913 457,000  19.53                     8,930,000 

1914 471,000  20.11                    9,480,000 

1915 485,000  20.51                    9,950,000 

1916 499,000  21.11  10,530.000 

1917 513,000  21.70  11.130,000 

1918 528,000  22.26  11,750.000 

1919 543.000  22.84  12.400.000 

1920 558,000  23.48  13,100,000 

1921 574,000  23.96  13,750,000 

1922 589,000  24.60  14.480,000 

1923 605,000  25.12  15,200,000 

1924 621,000  25.63  15,920,000 

1925 637,000  26.18  16,670,000 

1926 654,000  26.66  17,440,000 

1927 670,000  27.21  18,230,000 

1928 687,000  27.67  19,000,000 

1929 705,000  28.22  19,900,000 

1930 722,000  28.80  20,800,000 

1931 739,000  29.38  21,700,000 

1932 757,000  29.86  22,600,000 

1933 776,000  30.29  23,500.000 

1934 794,000  30.72  24,400,000 

1935 813,000  31.12  25,300,000 

1936 831,000  31.52  26,200,000 

1937 850.000  31.90  27,100,000 

1938 870,000  32.20  28,000,000 

1939 889,000  32.63  29,000,000 

1940 909,000  33.00  30,000,000 

1941 929,000  33.38  31,000,000 

1942 950,000  33.80  32,100,000 

1943 970,000  34.23        ,  33,200,000 

1944 991,000  34.61  34,300,000 

1945 1,012,000  34.99  35,400,000 

1946 1,033,000  35.31  36,500,000 

1947 1,055,000  35.61  37,600,000 

1948 1,077,000  35.92  38,700,000 

1949 1,099,000  36.21  39,800,000 

1950 1,121,000  36.57  41,000,000 

tBased  on  the  mathematical  law  of  growth  shown  graphically  in   Figure  5, 
tarting  with  earnings  of  United  Railroads  system  in  1910. 
•Earnings  per  capita,  all  companies,  $20.00. 


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Tables 
7  and  8 


li 


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ji    - 


TABLE    7— GROWTH   OF   CAR   EQUIPMENT. 

CITY  OF  SAN  FRANCISCO. 

Number  of  Operating  Car  Units 
Upon  Which  License 

To^lffJJ^  T^taf  for  ^'""^ber  as  Reported  From  Poor's  Manual. 

Year.                   city.  U.  R.  R.      steam.  Horse.  Cable.  Electric.'^'cu/"'"  ''v'r  'r 

^9^^ Ill  39  191  614  302         1.146 

Jnfto r??  21  105  583  348         1.057 

nil 1^,1  }l  103  567  349         1038 

Hal Ha  cnn           ^*  111  526  399         1.055 

nil II'  IZ          ]l          ^5  ^^«  438         1065           905 

19X4 68?  12           }«           H  S^^  441          l'«46           898 

ms:;::;:;:  ?37     III     ''     '    '''    '''    '''''     m 

III', Ill  I'l  1«     *    606  426  1.052  111 

llol til  III  2^^  459  665  484 

nil til  liK  206  459  665  484 

1910 589  til  ^20  489  609  484 

lln ell  III  13^  5^9  737  612 

m2::::;:::6?6     5^85  "^    '''     ^'^     m 

669t 
♦Statement  to  Assessors. 
tStatement  to  State  Board  of  Equalization 


TABLE  8— GROWTH  OF  STREET  RAILWAY  TRACK 

MILEAGE. 

CITY  OF  SAN  FRANCISCO. 

^^^^-                                               Steam.  Horse.        Cable.  Electric.        Total 

I860 • 

1868 3  A 

1871 ^0.0 

1875 *    '  45.0 

1887 :;.:;;  l^i 

1889 1420 

1890 ]lll 

1891 J°^? 

1^^4 20.3  59.0           112.5  47.7           239:5 

1^^^ 20.3  34.4           109.4  84.3           248.4 

\ll^^ 21.7  34.5           106.6  107.0           269.8 

1°^7 21.7  29.6           104.0  114.9           270.2 

1^^^ 22.0  22.7           103.5  114.5           262.7 

ilZ 13-^  160           101.7  129.0           260.5 

f^Oy 13-8  12.0           101.3  143.9           2710 

nil IJ-l  li             87.9  166.3           270.2 

ilZ 1?1  ^-^             86.2  186.9           289.1 

nii 101  5.9             86.2  191.3           293.5 

nil li  li            «4.3  206.2           298.4 

nil li  ^A            ^4.3  206.2           298.4 

]Zl 2.0  2.0             46.4  242.9           293.3 

JoVn .  38.9  246.4           285.3 

l^iy 33.9  255.7           289.6 

^^^1 35.5  259.0           294.5 


Table  9 


TABLE  9— APPROXIMATE   COST  OF   EXTENSIONS. 

UNIFIED    SYSTEM. 

Including  only  roadbed,  overhead,  cars,  and  power  converting 
equipment.* 


Period. 

Immediate : 
City  .  .  . 
Outside  . 


Miles  of  single 
track. 


Per  cent  of  grand 
Cost.  total. 


66.92 
4.76 


71.68 
After  five  years : 

City  .  * 44.00 

Outside 3.79 


$5,730,000 


51.0 


47.79 
Ultimate : 

City 21.37 

Outside 0.0 


3,820,000 


34.0 


21.37 


1,710,000 


Total  city 132.29 

Total  outside  control .       8.55 


Grand  total 140.84        $11,260,000 


15.0 

94.0 
6.0 

100.0 


*Assuming  power  purchased,  a't^e.rnatin^  ^cmi  reitt,^  ti>ug  excluding  cost  of  power 
stations  and  transmission  lines.       '      *  '  '  ' 


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TaU«  15 


TABLE  15— CAPACITY   OF   INDIVIDUAL   LINES  AND 

TUNNELS. 

SERVICE   LINES   TO   EXPOSITION. 
(See  Fig.  13.) 

Name  of  Line.                                           Max.    Headway    Cars  ^^i^^P^^^J^J^te 

grade,     (sees),     per  hr.  Car.  Kouxe. 

Cherry  Street  and  Presidio 10.0          30          120  100  12.000 

Presidio  avenue  and  Presidio....     11.0          30          120  100  12,000 

Franklin-Broadway-Gough 12.4          30          120  100  12,000 

Van  Ness  avenue 9.8           30           120  100  12,000 

Polk  and  Larkin  line 10.9          30          120  100  12,000 

Larkin-Vallejo-FVanklin 10.2          30          120  100  12,000 

Columbus    avenue  -  Jefferson     (or 

North  Point) -Fort  Mason  .  ...       8.0          30          120  100  12,000 
Embarcadero- Jefferson   (or  North 

Point) -Fort  Mason 8.0          30          120  100  12,000 

Presidio    and    Ferries    line,    via 
Broadway  tunnel  and  Steiner 

street 8.8          30          120  100  12,000 

Van  Ness  avenue,  via  Broadway 

tunnel 7.3          30          120  100  12,000 

♦Presidio  and  Ferries  line 13.8          45            80  60  4,800 

Hyde  street  cable  line 20.4        120            30  100  3.000 

Fillmore  balanced  cable  way 25.4         144             25  60  1,500 

Fillmore  tunnel 2.3          30          120  100  12,000 

Broadway  tunnel 1-0          30          120  100  12,000 

Fort  Mason  tunnel 0.0          30           120  100  12.000 

♦From  Larkin  street  to  Steiner  street  tiie  capacity  is  12,000,  as  the  grades  per- 
mit the  use  of  standard  equipment  and  30-second  headway. 

Note-    As  p-rtions  of  above  routes  are  identical,  the  resulting  duplication  has 

been  consider^  in  the  following  tables  in  establishing  mmimum  headway  at 
"throats." 


Table  16 


1  ; 


w 


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TABLE  16— RECOMMENDED  ROUTES  WITHOUT 

TUNNELS. 

SERVICE    LINES    TO    EXPOSITION. 

Line  and  Routing.  Max.    Headway  Cars  Capacity. 

grade,     (see's),    per  hr.      Car.         Route.     Total. 
Private  Companies. 

Polk  Street— 

Polk  -  Chestnut  -  Main  en- 
trance       9.6  60  60  100  6,000 

Polk-Ft.    Mason- Water  front 

loop 10.9         150  24  100  2,400 

♦Polk-Vallejo-Franklin  -  Un- 
ion -  Steiner  -  Greenwich- 
Main  entrance 8.8        100  36  100  3,600 

Hyde  Street  Cable — 

O'Farrell-Jones-Pine-Hyde  .    20.4         120  30  100  3,000 

Fillmore  Cable  Way — 

Fillmore  street 25.4         144  25  60  1,500 

Total  private  companies 16,500 

Municipal. 

Franklin  Street — 

Frankl  in  -  Broad  way-Gough- 

Concessions 12.4  30         120  100         12,000 

Van  Ness  Avenue — 

Van  Ness-Chestnut-Main  en- 
trance       9.8  60  60  100  6,000 

Van  Ness-Fort  Mason-Wa- 
terfront loop 9.8         150  24  100  2,400 

Van  Ness-Vallejo-Franklin- 
Union-Steiner- Green  wich- 

Main  entrance 9.8        100  36  100  3,600 

Columbus  Avenue — 

♦Kearny  -  Columbus  -  North 

Point-Fort  Mason 7.8  60  60  100  6,000 

Belt  Line — 
Embarcadero-North    Point- 
Fort     Mason  -  Waterfront 

loop 8.0         120  30  100  3,000 

Presidio  and  Ferries — 

Ferry-Columbus-Union  -  Lar- 
kin-Vallejo  -  Franklin  -  Un- 
ion-Baker-Greenwich .   .  .   13.8  45  80  60  4,800 

Total  municipal 37,800 

Total  unified 54,300 

♦Route  part  municipal  and  part  private  cooipanies. 

Notes:  As  the  franchise  will  expire  in  1913,  the  present  Union  street  line  has 
been  included  with  the  municipal  lines. 

The  above  capacity  requires  new  lines  both  on  Van  Ness  avenue  and  on 
Franklin  street. 

The  "throats"  or  points  where  two  or  more  lines  are  obliged  to  use  the  same 
route    have  limited  the  capacity  to  figures  given. 


Table  17 


TABLE    17-RECOMMENDED    ROUTES    WITH    TUNNELS. 

SERVICE    LINES    TO    EXPOSITION. 

U„e  and  Routine.  ^,.  ISZ"  veVL      Car.      ^ISfut^?'- Total. 

Private  Companies. 

Polk  Street — 

Polk  -  Chestnut  -  Main      en- 

trance 9-6  ^5  80  100  8,000 

Polk-Fort  Mason-Waterfront 

loop 10.9  90  40  100  4,000 

Hyde  Street  Cable —  ^^  ^.-  „  ^^^ 

O'Farrell-Jones-Pine-Hyde.   20.4        120  30  100  3.000 

Fillmore  Cable  Way—  ^^ 

Fillmore  street 25.4        144  25  «0  1>500 

Total,  private  companies... 16,500 

Municipal. 

Fillmore  Tunnel — 

G  e  a  r  y  -  Fillmore     tunnel-  ^oaaa 

Greenwich-Main  entrance    9.2  30        120  100        12,000 

Columbus  Avenue — 

Stockton    tunnel-Columbus- 
Fort  Mason  tunnel-Water-  ^  AAA 
frontloop 7.7          90          40          100          4,000 

Belt  Line — 

Embarcadero-Jefferson-Fort 

Mason  tunnel-Waterfront 

loop 0.0  72  50  100  5,000 

Presidio  and  Ferries — 

F'erry-Columbus-Union-  Lar- 
kin-Vallejo- Franklin -Un- 

ion-Baker-Greenwich  .   . .   13.8  45  80  60  4,800 

Broadumy  Tunnel  and 
Franklin — 
Ferry  -  Broadway      tunnel  - 

Larkin-Vallejo- Franklin-  .  aaa 

Concessions 8.8  90  40  100  4.000 

Stockton  tunnel  -  Broadway 
tunnel -Van  Ness -Union- 
Franklin-Concessions  ...     8.8  45  80  100  ».000 

Total  municipal ^'^'^^^ 

h  Total  unified ^*'^^^ 

Note-    The  capacities  of  the  Franklin-Broadway-Gough  and  Van  Ness  avenue 
lines  are  not  included  in  the  list  of  routes  with  tunnels. 


Tables 
18  and  19 


It*  ( 


TABLE    18— VOLUME    OF   VEHICLE  TRAFFIC. 

OBSERVATIONS    BY   TRAFFIC  BUREAU,    POLICE   DEPARTMENT. 

March,  April  and  July,  1912. 

Average 
Count  Points.  Hourly  Traffic. 

Third  and  Market 730 

Fourth  and  Market 982 

Post  and  Kearny 478 

Sutter  and  Kearny 472 

Sutter  and  Grant 473 

Post  and  Grant 528 

Geary  and  Grant 449 

O'Farrell  and  Stockton ..V. .[...][ ..  449 

Sutter  and  Powell 323 

Ellis  and  Powell .!!.!...!.......  354 

Sutter  and  Montgomery 459 

Third  and  Mission 721 

Fourth  and  Mission 826 

Sixteenth  and  Mission  .  ..............[ 420 

Polk  and  Sutter 4^7 

Fillmore  and  Sutter 160 

Post  and  Stockton *  * ' 397 

Third  and  Howard 469 

Fourth  and  Howard * 453 

Sixth  and  Market ,,', 722 


TABLE   19— TYPICAL   OPERATING   SPEED. 

MAIN   THOROUGHFARES. 


TaUet 
20  and  21 


TABLE    20— CAR    LOADING    STANDARDS. 

ELECTRIC  EQUIPMENT. 


Total  Capacity. 
I.  II.        III. 


Per  Cent  Loading. 
I.  II.         III. 


Streets.  Distance. 

CITY  TERMINAL: 

Market 0.552 

Post  .  .   0.71 

Kearny  and  Third..  0.485 

Sutter    0.331 

Montgomery 0.443 

Average 

SLOW: 

Sacramento 1.47 

California    2.80 

Divlsadero 1.48 

Third 0.836 

Mission 0.595 

Haight 0.86 

(Leavenworth  .....  0.461 

Average 

MEDIUM: 

Sixteenth 0.983 

Hayes 0.831 

Hayes  and  Stanyan  1.53 

Sutter 0.965 

Bryant 1.23 

Larkin 0.709 

Eddy 1.184 

Market  and   Castro.  1.06 

McAllister 1.47 

Folsom 0.773 

Guerrero l!o9 

Gough  .  .    0.441 

Average 

RAPID: 

O'Farrell 1.31 

Mission 1.61 

Kentucky 1.26 

Valencia 1.89 

Point  Lobos  Ave 0.988 

Howard 1.07 

Fulton 1.48 

Clement  . 1.48 

Lincoln  Way 2.79 

Average 

Average  soeed  for  entire  city 


Time. 

7'  06" 
6'  45" 
5'  45" 
9'  00" 
4'  30" 


11'  30" 
21'  45" 
12'  30" 
8'  00" 
7'  00" 
8'  00" 
4'  00" 


7'  00" 
6'  00" 
6'  00" 
6'  00" 
8'  00" 
5'  00" 
8'  00" 
7'  00" 
10'  30" 
5'  30" 
8'  00" 
2'  45" 


Miles  per 
Hour. 

4.664 
6.306 
5.058 
2.206 
5.906 
4.416 

7.658 

7.7 

7.104 

6.27 

5.099 

6.88 

6.915 

6.6186 

8.415 

8.3 

9.18 

9.65 

9.225 

8.232 

8.88 

9.08 

8.393 

8.425 

8.175 

9.621 

8.931 


Location. 

Sansome-Powell. 

Montgomery-Leavenworth. 
Bush-Howard. 
Sansome-Stockton. 
Washington-Post. 


Stockton-Fillmore. 

Market-Presidio. 

Oak-Sacramento. 

Townsend-Market. 

Valencia-Richland. 

Market-Divisadero. 

Post-McAllister. 


Bnrant-Church. 

Larkin -Fillmore. 

Divisadero-Fulton. 

Keamy-Van  Ness. 

Third-Alameda. 

Market-Post. 

Mason  -Webster. 

Gough-Eighteenth. 

Market-Divisadero. 

Steuart-Fourth. 

Eighteenth-Vallejo. 

McAllister-Haight. 


7'  30"  10.48 

9'  00"  10.722 

5'  45"  13.14 

11'  00"  10.26 

5'  00"  11.856 

6'  15"  10.272 

6'  15"  14.17 

8'  45"  10.151 

14'  00"  11.938 
11.311 

(schedule),  8.529 


Hyde-Dlvisadero. 
Third -Fourteenth. 
Hubble-Twenty-third  St. 
Gough-Misslon. 
33d  Ave.-48th  Ave. 
3d  St.-lOth  St. 
8th  Ave. -33d  Ave. 
8th  Ave. -33d  Ave. 
1st  Ave. -48th  Ave. 
'    '     !    '     ■         '         I        I    !M    • 
miles  per  hour. 


Type.    Seats. 

Com- 

Nor- 

Emer- 

Com- 

Nor- 

Emer- 

Routes Operated 

forta- 

mal, 

gency, 

forta- 

mal, 

gency 

On 

ble. 

Max. 

Max. 

ble. 

Max. 

Max. 

1-12 

56 

100 

106 

122 

178 

189 

218 

San  Mateo. 

101-180 

44 

9(8 

108 

134 

218 

248 

305 

Hayes;   Sutter. 

681-698 

44 

71 

99 

127 

161 

225 

289 

Kentucky. 

700-712 

43 

79 

88 

110 

184 

195 

256 

Kearny;   Parkslde. 

731-745 

40 

73 

97 

137 

182 

243 

343 

Folsom. 

1001-1024 

40 

78 

94 

136 

182 

2S5 

837 

Mission  and  24th. 

1225-1244 

48 

72 

78 

82 

150 

162 

171 

Cemeteries. 

1300-1425 

40 

73 

77 

96 

182 

192 

240 

Fillmore- Valencia ; 

Fillmore-Sixteenth; 

Mission- Richtnond; 

Kearny. 

McAllister,  9th  and  Polk. 

1500-1549 

44 

80 

87 

100 

182 

198 

227 

1550-1749 

44 

86 

93 

110 

195 

211 

250 

Valencia,   Haight; 
Ellis-Ocean,  Market; 
'Ingleside,  Howard. 

Single 

truck 

28 

55 

75 

99 

196 

288 

353 

18th  St.,  Fillmore  Hill; 
Sixth   and   Sansome; 
Tenth  and  Montgomery. 

Geary 

47 

81 

87 

105 

172 

185 

223 

New. 

1912, 

U.  R.  R. 

49 

88 

95 

121 

179.3 

194 

246 

New. 

Seating  capacity,  longitudinal  seats,  based  on  17  inches  per  passengfer. 

I.  Comfortable  standing — 150%  cross  seats,  200%  longitudinal  seats. 

II.  Normal  maximum  loading  (3  square  feet  per  passenger). 

III.  Emergency  maximum  loading  (2  square  feet  per  passenger),  (both  plat- 
forms or  both  running  boards). 


TABLE  21— CORDON   OR  THROAT   COUNTS. 

POINTS    OF   OBSERVATIONS. 

Count  No. 

Powell  at  Post 30  North. 

Third  at  Brannan 39  South. 

Polk  at  Sutter 25  North. 

Sutter  at  Polk 26-A-B  West. 

Eddy  at  Jones 27  West. 

Ellis  at  Jones 29  West. 

Post  at  Powell 32  West. 

Kearny  at  Sacramento 38  North. 

Sacramento  at  Kearny 37  West. 

Kearny  at  Pacific  (Union  line  only) 41  North. 

Fourth  at  Townsend 40  South. 

California  at  Kearny 33  West. 

Geary  at  Jones 34  West. 

Jones  at  O'Farrell 35  North. 

Folsom  at  Fifth 44  South. 

Mission  at  Tenth 51  South. 

Bryant  at  Eighth 45  South. 

Harrison  at  Eighth 52  South. 

Market  at  McAllister 55  West. 

Market  at  Sutter 64  East. 

California  at  Drumm 106  East. 

Sansome  at  Broadway 107  North. 

Ninth  at  Mission 108  South. 

East  at  Clay 109  East. 

East  at  Mission Ill  East. 

East  at  Mission ^     112  East. 

Note:    Counts  taken  at  transfer  points  Include^  outbpyn^  transfer  traffic  on 
trunk  lines. 


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CQC4C4C4 


taeotaia     C40 


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to     tat^'^n 


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o  ■*■*■♦'♦ 


tOlOUiiO 


^xaia-^     t-o>     c<i 


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ggSeOMC^C)       e<)00O0CO    I  <0       OOiHtHO    |o       r-ICae<lT-t       t«r-l 


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t-     toididoo     ode>i     ,« 


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CO       «O00<O 


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•*        <P        tHlOOt-        COoi        tH 


C4 


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0>  00  tH  Ci  CO 
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n 


00-^00  00 


tH        tOC>C4lO 


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CQCoe^iM     oot^oooo 


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a  •O  h  <0  US  kO -<•      -^ooco 

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to  '*«•  O  to  kA 

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fc   P  tHO>iH< 


CO 


to-^teo 

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to      cqokA'* 

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to     t--^oste 

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to       iH  tHCICl  tHm 


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tHClCI  tHCq  tH  -' 


tHCltOtO 
NiHtHiH 


^<^^^     to 

CO 


kOi 


IN 


coco  coo 


t><eiHOO       t-00       tH 


0»       kOt-OOiH       Tf  OS 
O      '^OOt-00      tot- 


♦H      k^  a» 


tHiHtHtH        tHiH        tH        2 


CJ  00  O  iH  O  iH  tH 

to       tHCOiHt^  tO'^  O 

oo     t— o  OS  OS  COOS  OS 

kO        tHC4lHtH  tHiH  iH 

eo 


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COrj  GOeOC4GO 


5?* 

d'eeoeorHCO     «o^C4«o 
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kA       tO-^  C4  kA 

eo     •^TfcocM 


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t—      ooc»  •^ca 

CO        tHtH        tH 


s 


toooko  I  CO     cooc-eo 

CQCOCOM    I  C4       kOt-kOte 


W        tj 


'ft-Wt-Oi      oo-^ooto 

o  to  o  o> 


kAW*^ 
'^kACOtO 


n 


cocicoeo   I  C4     tototooo 


k,eo<eu3<o     ootooto 


kAlA'^t- 


» 


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cot-cot-     eg     '^kAOOto 

tHC4C4C4        0>        C^kOeOkA 


to       C4M&1C^        Ciev]        C4 


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kA      iHt>^tOO  kACO  00  :s 

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••<•        C«C4tHiH  e^ltH  tH  •< 

e<i  tj 


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00        CgC4C4N  C^C«  CI  5 

e>»  «2 


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tH      t^otdu)     co'i-^      o 


%*  o 

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^j  f.  eo  OS  CO  CO 


OOOOtOt-       tHO 


ca 


PC4C4C4C4        tOtOtOtO 
**  oo  no  oo  QO 


^"<l"^^      to 

kA 


OOOOOOOO 


t4 


eo 


t-kAOOS 
^*  OS  OS  t— 


Ml 


to         t- tHi 


icq 


o  I—  ■^c^i 

kO       eviiHC4C4 


tH       OSkA-"*©       •'fOO        to        jj 

T»«     -^root-to     toto     to     3 

00        THtHiHtH        tHiH        tH         O 


totoevito 


^  A '^ -^i eo '<<<     ooootooo 
OS*  


O       OOkAOSOi 

eo      egc400'« 

to       tHtH 


CJOO'^ 

eo      ■VkAoi 

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00        tH 


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OS      eot-'*ii 

00       tHiHi 


b-eok 
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O       <OCO< 
to       tH01( 


OOC<I< 

■^      oit^« 
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coco  1 
tH     o6o6( 

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CI        iHCMi 


trooi 

OS         l-HO< 

t-      cieo  < 


OOtHi 
tOkA- 


kAtP< 

tH  OkA< 
tH  t-CJ( 
to         tHCII 


tHeo< 

tH        tO'"!"" 

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CO 


e4kOOOO       tHO       to 


ji  g '••co'*^    ^00 
00  n 


s; 


oocogpoo 


d       lOOOt-tO    I  to       MiHOO»       oo       O        Zt 


0) 


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00        OOOr-4^        OS  tH 


tHtHtHfH   I  to      eocaeoco   I  eo     tHeMcici      ihcm      c<» 


OQ 


h  a 


00 
00  00  00  CO 


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lOkAtHOO    I  0»       tO'^IAkA  lAC^i  tO 

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MCOCON        eo       tHCjTHCM  iH  tH  tH 


«2. 


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CO" 


O  ^  00  ^ 
00  ^  o  ^ 


OQ 


00  00< 

•*! •«*i •♦  ■«•«  I  to     oooi 


to 

t-         tHt-^O 
kA       C4tHiHC<l 


CO 


OQ-M 
09 

a  u 


^^^'^       to 


IC4( 


tHOS< 


o»t-oot-  otoooto 
00  OS  eo  OS 
eoC4eoc4 


tH     t-o»eooo 

OtHkAOO 


eo 


•^tT'^CSl 


t-        t-tH- 

to       0'^< 

kA        tHtHi 


kA       t-OtOO       O^OO 
tHCJtHC* 


o» 


•^kAtatOOO       OO'^N 
•<.  C1C4  to  kA 

O  C4C4C4tO 


b<kAkAkAUS       kAIAkAkA 
ttjiHiHtHTH       tHtHiHr-l 


to       t-kAOkA 

kA       O  OS  O  kA 
O       •♦•♦kAtO 


kAkAtAlA 


0>OC400  toco  OS 

t-       ■<«<kAoitA  '«<t^  ■* 

>A       O0C40O0O  OoO  00 

O       rHCSItHtH  CliH  tH 

ca 


kAkAkAkA       Oo        O 
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•   M  o< 

a  —  oiA '♦■♦■*' 

0»CUX3 


otetoto   loo     t-toc4C4 

CJt-t-t-    \  -^       tOtHCOOO 
CQtHTHtH        t-       C4eOCOC4 


C4kAkAO       CltH 

tHosodo     t--^ 


OS        C4t-00tO 


■^  t- 


to 


Cuos 


M'SMe^evitH     ^-^^ci  I  •*     THooo»t-  l  to     tO'*- 
«>  -  OOOOOO'^   I  OS      oot-t-        \'0it      o>os( 

Mm 


oQ^: 


OkAOOtH       OSkA       OS 


AOSt-00      c«e<ito'^ 

kAkAO>e^4 
C4e<ltHC4 


1 


i 


^'^kAkA'^       C400C4 


fekA'<4*eM^      Oe<itoc4 

S  ■♦tHkA'H 


li  kAkAkAkA       kAkAkA^A 


I     I 


-a 


•M       !- 


<i 


2 


(lA 


4-1 


0) 


« 


bo 


bo 


c    5 


o        5     g 


iJI-, 


bo 


•♦     ooe<io»0 

Cfl        tOiHCIt- 

os      CO  'ij*  eo  CO 


•««•       t-kAtOCq 
O        t-  "^  kA  eg 

kA      iHegesic4 


O         »H  t-COOO 

eg      OS  to  t-'* 


kAkAkAlO 


OS     toeot— kA      •^  to 

t-       '^tOtOtO       kAtO 


OS 
kA 


C4 


'*^^'*<       to 


C4 


tOOi 

totototo   I  kA      ooeo^'^  I  OS      ootO' 


Segegegcg     totototo      kA      ooeo^"'*  i  os      ooto 
*t  oooooooo      •^     toooOt-      o     e^os 

5  CO  tH  CO 


Oi 


OS 

t- 

kA 


osoooeg  tH  to  eo 

t-^kAe<io6  t-^  OS  oo 

kAl-OOOS  tooo  t- 

tHtHiHtH  tHtH  iH 


<<<OegtH  o>'^  OS  CU 

•      •      •  •       •  •  , 

to  OS  o  eg  tHtH  t—  I 

eo  -^eoeo  ■"•'CO  eo  I 

tHtHiHlH  tHlH  tH  J 


kAkAkAkA       OO       O 
tHtHr-ltH       coco       tO 


*  ? 
U!M 


kACO' 


<-4<       OtOoOOO 

rH  eg  to  to 
egtHiHTH 


kAkfl  kAkA 


OJkAkAkOu':       kAk«kAkO 
■MtHtHtHiH       tHtHrHtH 


eg      oooopt- 

t-       kAkAt-O 

to      egegc^eg 


kAkA"5kA 


OO'^I 

CO      eg  ^* ' 

OS        ClO' 

OS     iHcg 


kAkA 


4) 


0) 


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bo 


w  ea 


TO  C 

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n 
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bo 
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bo 


p    ■«-• 


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Table  23 

hOO 

sto 

egiH 

•      • 

OOO 

• 

M 

3t- 

ooO 

•«»< 

•s^ 

■< 

iHtH 

tH 

fa  « 

<IOS 

OS-«« 

CO 

•^ 

-IkA 

oo» 

OS 

I<tH 

kAeg 

eo 

■ItH 

tHtH 

tH 

acq 

t-»A 

CO 

jJd 

ot^ 

t-i 

4-1 

0  00 

oso 

o 

X 

MiH 

tHcg 

eg 

4.> 

08 

4-1 

a 

9  00 

•♦CO 

t- 

08 

6  eg 

00  to 

tH 

i>> 
It 

HtH 

egtH 

C4 

n 

Ht- 

eqo) 

eg 

OkA 

00  tH 

o 

oeo 

OS  to 

00 

HtH 

tH»H 

rH 

•« 

-00 

COOS 

tH 

•       • 

■       • 

• 

OkA 

kAO 

OS 

gto 

H 

C4  0S 
tH 

o 

• 

c 

08 

-lOO 

OtH 

tH 

C 

c 

ftO 

tOtH 

to 

g^ 

HOI 

■*o 

eg 

t> 

H 

tHtH 

tH 

4-> 

08 

St- 

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CO 

^kA 

t^^kA 

to 

g 

goo 

OSkA 

t- 

g 

tHtH 

tH 

DtH 

■<««o> 

tH 

DOS 

kAtO 

ci 

^ 

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t-"* 

to 

gto 

t-tH 

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OS  00 

t-^ 

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0-* 

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■w  S 

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iHtH 

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tHOO 

kA 

■^ 

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OS 

oo> 

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CfltH 

tHtH 

tH 
tH 

s 

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to 

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0) 

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CO 

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JStH 

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00 

es 

MkA 

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tH 

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t-eg 

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>, 

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tH 

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a 

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to 

DO 

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t- 

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kA«*« 

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tHtH 

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coeo 

to 

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Table  23 
(Coned) 


5SS 


-  2  *'<*'-•  w  00  t- o>  t" 
g2  lOooNoo 


a  9 

o  p -^i -^  00  ec  o  c7>  o  to 

Ssfi  «OOC-IO 


04 


■^  ooee<iio 

N  lOOOfHoo 

O  CO  ^U30 

CO  ,He4r-lr-l 


i 


0)    gj    hi 


o^e 


usiokaia 
o>  o>  o>  o^ 


O       0<00>0 

00     o»<eco«o 

t-       TH9401C1 


\o     o>coe>ico 

0»  »HT-t»-t 


0>O>      to «     • 

•      •  •  ■! 

fHOl       M  hi  fl 


M                                   r-lU3 

a                    '-' 

00 

C«rH 

04 
09 

S' 


«Ot- (0«D 


o 


a  i 


13 


a  ^ 

as 


LtAtatAto     tototato 

^  1-t  r-i  1-t  T-i        r-li-Hi-tr-t 


^00  •^•f 
i-ltHiHr-t 


00  •^'^^ 

eoooo 


CQOOOIOI 
iH«0»H»-t 


to  to  to  to 


o 
o 


t-«Or-lT-« 

a»«0<oco 

04  CO  CO  CO 


to 
to 

CO 


040>to0  040  O  S 
0)0  <D  0)  S 
040I       04  0?* 


SOieOCOr-t'^CC^OOl 
^  00<N04.^ 

§  rHfl 

O 


<pt<*oo 

0r-lt0  03 
04  04  0I04 


a 
o 


O       040<0r-l 
iO       ■*©(M04 

00     cococoeo 


o 
to 


Ottocob- 

OiOtO^ 
Olr-lrH 


to  to  to  to 


^oooco 
o>     eot-oit-i 

00       '^^  tOkO 
04       -Hi-li-lrH 


^0  0»04 

t-     00  oi  o>  1-i 

O       00O4COCO 
«»  r-lrHrH 


%    tt.    %    « 

IO  to  to  to 


•  •  •         •      "■ 

tooo     f-ivi  u 
•*to     tos  9 

tHtH       r-l  oS^ 

on 


t-04       CO  1^  O 

ooto     o  a  -S 
oeo     04  ii  t» 


coco 


1 04  M  eq  C4  00  N  00  00 
qocoQOoo 


4^  O40404O4«OCO<O<O 

8 


00       i-IO>-^0 

b-     ^toeo  A 

CO       rHO404 


to  OO'^O'^ 
o>  OIOt«CO 
CO       0404r-t<-l 


fH  0»  04  to  o  01  <o   a 

JO   ■«<r-l«C««e«4COt-   ^ 

IO  <0  00  to  M  t- -«•  to   9 

04  00  CO  «Q  CO  CO  CO -M  ^ 

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Table  24 


TABLE  24.     SCHEDULES  OPERATED  BY  STREET  RAIIAVAY  COMPANIES  OF  SAN  FRANCISCO-JUNE  30,  1912 


Line  and  Destination 
by  Car  House  Divisions 


Route     Round        Dead 
No.  Trip      Mileage 

(a)       Mileage       (6) 


Minutes 
Running 

Time 
Out      In 


Minutes 
Lay-over 

Out     In 


Average 

Sf)eed 

(m.p.h.) 

(c) 


Range  in  Headway  (d) 


Rush  Hour 
From         To 


Headway 

Min. 


Mid-d;iy 
From         To 


Number  of  Trips 

Per  Hour 

Headway    Rush        Mid- 
Min.        Hour      day  (e) 


Number  of  Cars 
Assigned 
Rush        Mid- 
Hour         day 


TURK  &  FILLMORE  37  ^  0.5  8.402  5:00 

1  ? Mf^  *  ^iLV 22  0  178  190  26  26  2  2  8.724  5:00 

2  S'l  """"^  t  1/^*,**  •  •• 23  9   184  2  06  30  30  1  2  8.610  5:00 

3  Fd  more  &  Valencia 2^  ^   »»J  f  ^»  ■'^  6  2  1  4.896  5:00 

t      SS^rJ^'Sxter^sion:::::::::::::::::::::::::::  H  '.16^  2.06  *  *  0  0  2.760  s^ 

6  ^"""SSter  &  California i  i3.672  3.12  40  40  2  2  9.118  5^ 

7  Sutter  &  Clement 2  13.716  2.76  *^  T^  i  i  jijT  5.90 

8  Sutter  &  Jackson..    3  6.478  6.94  22  22  2  2  7  621  5^ 

9  Mis-sion  &  Richmond 24  15.012  4.47  4/  *i  ^  o 

McAllister                                                       .  ,,  ,,„  2  qi  4i  43  4  1  9.090  s-oo 

1?      H^i^ms::::::::::::::::::::::::::::::::::::  2!  'i.Ul  U\  *A  tl  2  2  8.502  s:oo 

^^\^  BRODERICK.  AND  HAIGHT  51  3  2  10.062  SrOO 

12  Elhs-Ocean 20  l/.iu/  lu.i*  »y  ^^ 

13  Hayes «  9.723  3.47  43  «  *  u.a  ^_^ 

14  Haight '  ,^f,f2  0  00  27  I'  *  \  „  022  5:00 

\i      fl?S'^^'."'^•:::::::::::::::;::::::•.::::::38&39 'S:S56  3:1?  li  5i  5  i  10.524  5=00 

28TH  &  29TH  o  112  1  50  32  32  3  5  0  «  238  SK)0 

17  Valencia «  ^."2  1.50  32  ii  |.3  ^  ^^^  ^_^ 

18  Market »  ^^  2  64  32  31  1  2  8.225  5:00 

19  Mission  &  24th "  9.^00  4.64  32  ^»  }  ^  „.i9o  SKK) 

20  Mission »«  13.434  3.84  35  .15  i  j  ^^^^ 

21  22nd  &  Howard 4*  5.243  4.64  18  18  2  1  ^.^ 

22  Bosworth  Street 27  1454  1.58  5  5  ^yj  in 

GENEVA  AVENUE  ,,  _.  „  73  7  7  15.846  5:00 

23  San  Mateo «  39.614  3194  73  ^^  ^  j  io.746  5:00 

24  Cemeteries \*  21.494  11.52  55  ^^  ^  *  io.254  5K)0 

25  Ingleside 12  20.506  7.97  57  ^»  *  ^  9^08  5:00 

26  Guerrero 26  16.014  2.76  4»  H  J  2  8.478  5.-00 

27  Glen  Park 10  13  000  4.07  43  *|  |  ^  8.500  5:00 

^5      ?^Sc£iJ"::::::::::::::::::::::::::::::::::::  ^  S^^SS  "JJ  "  \l  I  2  9.176  5:00 

24TH  STREET                                                                               ,  a  706  n  00  28  28  2  2  8.796  5:00 

30             Howard 35  8.796  0.00  28  ^^  \  \  8.024  5:00 

31      Fo»^- ::::  \i  ?:62t  1:1?  2I  26  2  2  7.624  5:oo 

32  Bryant 7°  c  nnt  x  i<i  21  21  2  2  7.648  5:00 

33  9th  &  Polk 19  5.002  3.25  21  21  i  /                ^^^  ^.^^^ 

34  San  Bruno "  10.620  4.94  35  ^^       {  }  5973  5:00 

a      ffiVsa^n^sSr-^!'.^.:::::::::::::::::::::::::::  «  i;??!  IS's  ^^  25    i  i  7.154  5=00 

KENTUCKY  ,,  is  15  1  1  5:00 

37  Kearny  &  Broadway "  ••••  ••••  ja  23       1  1  6.588  5KK) 

38  Kearny  &  Beach 15  5.275  3.57  23  ^|       {  5  8  214  5:00 

39  Kentucky 1*  13  150  4.83  45  \^       \  \  9500  5:00 

40  8th  &   18th 31  9.500  3.20  27  ^\  \  \  10.146  5:00 

41  Railroad  Avenue *0  ^ ^»^  |  »^  ,2>^  \2\i   \\i  \  7,104  5:00 

g      ?s?tTth:::::::::::::::::::::::::::::::::::::  3*  1:56$  I  si  20^  I9   1  1  j^  5=00 

TOTAL  ELECTRIC *  ^^^ 

WASHINGTON  &  MASON  14  2  2  6.031  5:00 

44  Powell 53  3.217  1.624  14  14  z  ^  ^.^ 

45  Sacramento 54  4.556  1.342       8  »       j  2  6.372  5:00 

46  .Tackson    51  4.462  2./4»  i  911  6.858  5:00 

47  Pacific  Avenue 52  2.280  M.\ni         » 

48  '^"^CaSo^.^^. 48  1.786  0.00         7  7       13  _6J23  5:00 

TOTA^EiKRicAND  CABLE  (u/RjR;);:::::::::::::::::::::::::^  8:529 

49  PRESIDIO  &  FERRIES 45  7.63  ....  30  29  3  2  7.76  4:30 

CALIFORNIA  STREET  CABLE  20  18  5  3  4:20 

I?      g^^arreiu.)::::::::::::::::::::::::::::::  S  ::::  ::::  la  19  6  3  4:25 

52     GEARY  (CABLE) 49  7.67  . .  .^  30  30      7  3 'j^     '^ 

(a)  Route  NMTMt^lished  by  thrCompany  up  to  No.  26.  thence  numbered  consecutively  and  applying  to  all  records  herein. 
(6)   Includes  both  revenue  and  non-revenue  dead  mileage, 
(f)  Average  speed  figured  on  car  hour  basis, 
(d)  From  inner  terminus. 


6:00 

2H&3 
2&2>^ 

12O0 

6:00 

nm 

6:00 

8 

12:00 

6:00 

5 

12:00 

6.-00 

8 

12:00 

6K)0 

4 

12:00 

6:00   2.2H.3.3H.4 

12K)0 

6KX) 

SVi 

12K» 

6KX) 

6 

12KX) 

6:00 

2H 

12:00 

6:00 

7 

12  KX) 

6K)0 

2&2J4 

12K)0 

6K)0 

3 

\2iOO 

6K)0 

2 

12K)0 

6K)0 

5 

12KX) 

6K)0 

15 

12:00 

6:00 

2&2>^ 

12:00 

6:00 

2&2>^ 

12:00 

6:00 

2H,3.  4 

12:00 

6:00 

6H 

12:00 

6.00 

13 

12KX) 

6:00 

15 

12K)0 

6:00 

15 

12:00 

6:00 

7.  8&9 

12:00 

6KX) 

6&  12 

12:00 

6K)0 

6&  12 

12:00 

6K)0 

6&  12 

12:00 

6K)0 

25 

12:00 

6:00 

15 

12:00 

6:00 

5&6H 

12:00 

6:00 

5&4 

12:00 

6:00 

4&7 

12K)0 

6:00 

3H 

12:00 

6:00 

8&9 

12:00 

6:00 

6 

12:00 

6:00 

6>4 

12:00 

6:00 

8 

12:00 

6:00 

4 

X2iOO 

6:00 

7&8 

12K)0 

6:00 

6 

12KX) 

6:00 

10 

12:00 

6:00 

5H 

12K)0 

6:00 

14 

12  KX) 

6:00 

4.  4HftS 

12:00 

6:00 

4 

12K)0 

6:00 

3 

12K)0 

6:00 

5 

12:00 

6K)0 

3J4&4 

12:00 

6:30 


6:20 
6:20 

6:00 


3M 


2H 
2}^ 


12:00 
12:00 


1:00 
1:00 
1.00 
1:00 
1:00 


1:00 
1:00 
1:00 
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XiOO 


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1:00 
1:00 
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iiOO 


1:00 
1:00 
1:00 
1:00 
1:00 
1:00 


1:00 
1:00 
1:00 
1:00 
1:00 
1:00 
1:00 


1:00 
1:00 
1:00 
1:00 
1:00 
1:00 
1:00 


1:00 
1:00 
IKX) 
IKX) 
1:00 
IKK) 
IKX) 


1.00 
1:00 
1:00 
1:00 


10:30       1 :30 


1:00 
1:00 


4H 

4 

lOH 
5 
8 


7 
6 
8 
9 


3}4 
7 


5 

5H 
3&3H 
10 
15 


4>^ 
4&4>^ 

6}^ 
15 
13 
15 


20 
IS 
15 
13 
13 
30 
15 


8&8H 
8&8i^ 

8 

5 
14 

6 

6>4 


8 
4 
8 
8 
10 

14 


6M 
5 
5 
6»/i 


3 


12:00       1K)0 


22 
26 

7.5 
12 

7.5 


15 
20 
10.9 
10 


24 
8.6 


26 

20 
30 
12 

4 


26 
27 
21 

9. 

4. 

4 


4 
6 
8 
8 

7 
2.4 

4 


12 
12 

11.6 
17.2 

7.5 
10 

9.2 


7.5 
15 

7.5 
10 

6 
10.9 

4.3 


14 
15 
20 
12 


17 


78 
605.4 


20 


24 
24 

20 


12.6 
15 

5.7 
12 

7.5 


8. 
8.6 

7.3 
6.7 


17.1 
8.6 


12. 
10.9 
17.4 
6 

4 


13.3 
14.1 
9.2 
5.7 
4.6 
4 


3 

4.4 

4.4 

4.6 
4.6 
2 

4 


7.3 
7.3 
7.5 

12 
4.3 

10. 
9.2 


7.5 
15 
7.5 
7.5 
6 

9.6 
4.3 


527.4       351.2 


9.2 
12 
12 

9 


10 

52.2 
403.4 


15 


20 
18.5 

15 


21 

28 

8 

3 

1 


20 

23 

9 

16 


29 
7 


32 
27 
29 
13 
3 


32 
23 
24 
12 
3 
1 


10 
12 
15 
13 
11 
2 
2 


12 

12 

15 

13 

9 

8 

8 


8 

12 

13 

10 

2 

5 

3 

559 


7 

10 
14 

4 


40 
599 

20 


18 
16 

22 


16 

13 

6 

3 

1 


10 

11 

6 

10 


18 
7 


17 

12 

14 

6 

3 


14 

14 

10 

7 

3 

1 


8 

8 

10 

8 

7 
2 
2 


8 
7 
7 
8 
5 
8 
7 


8 
12 
12 
6 
2 
4 
3 

337 


5 
8 
8 
3 


15 


Seating 
Capacity 
Per  Car 


Seats  per  Hour 
Rush        Mid- 
Hour         day 


Size  of  Class  or  Cars  Assigned  by  Routes  (/) 


A 
46 


B 
44 


C 
40 


D 
42 


Electric 
E      F 
48     42 


Cars 
G      H 
44     44 


I 
56 


J 
44 


K 
44 


L 

28 


Cable  Cars 
X  Y  Z 
36     36     28 


44 
42 
44 

28&30 
28&30 


46 
46 
46 

42 


44 
44 


44 

46 

44 

28&30 

44 


44 

44 
40  &  42 

44 
28  &  30 
28&30 


56 

48 
44  &  40 

42 

42 

44 
28  &  30 


44 

40  &44 

42 

44 
42  &  44 

28  &  30 
28&30 


42 

42 
44  &  42 
42  &44 
28  &  30 
28  &  30 
28&30 


28 
36 
28 
36 


36 


28 


34 

24 

39 


880 
1092 
330 
348 
217 


690 
690 
501 
420 


1056 
377 


1056 
966 

1188 
348 
176 


1144 

1188 

1256 

406 

138 

116 


224 
288 
352 
336 
294 
105 
116 


406 

620 
486 
754 
287 
290 
267 


315 

630 
324 
430 
174 
248 
124 


392 
540 
560 
432 


612 


2536 
24189 

560 


816 
576 

780 


(e)  Approximate;  estimated  from  headway. 

(/)  Numbers  immediately  below  class-letters  indicate  number  of  seats  per  car. 

(ji)  Two  cars  run  shuttle  service  on  Jones  Street — headway  three  minutes. 


554 
630 
251 
348 
217 


368 
396 
336 
281 


752 
377 


528 
501 
704 
174 
176 


585 
620 
377 
251 
133 
116 


168 

211 
185 
193 
193 
88 
116 


321 

307 
315 
528 
185 
290 
267 


315 
630 
322 
322 
174 
248 
124 


21653   14130 


258 
432 
336 
324 


360 


1710 
15840 

420 


680 
444 

585 


20 

23 

9 


27 


10 


12 


28 


16 


22 


12 


13 
11 


15 


8 

12 

1 

3 


21 


29 

7 


32 


29 


32 
23 


12 


10 


13 


12 
2 


13 


13 


20 


10  . 


14 


18 
16 

22 


1 

2 
3 

4 
5 


6 
7 
8 
9 


10 
11 


12 
13 
14 
15 
16 


17 
18 
19 
20 


37 
38 
39 
40 
41 
42 
43 


44 

45 
46 

47 


48 


49 


50 
51 

52 


KEY  TO  CLASS  OF  ELECTRIC  CARS 


21 

Index 

Numbers 

Type 
Qosed  P.  A.  Y.  E. 

11 

A 

101  to    180 

B 

681  to    698 

California. 

C 

731  to    745 

California. 

li 

D 

1001  to  1024 

California. 

24 

E 

1225  to  1244 

Closed. 

25 

F 

1301  to  1425 

California. 

26 

G 

1500  to  1549 

Closed  P.  A.  Y.  E. 

2; 

H 

1550  to  1749 

Closed  (partly  P.  A.  Y.  E.) 

28 

I 

1  to      12 

Interurban  ^osed. 

29 

J 

900  to  1000 

California. 

1100  to  1200 

California. 

K 

700 

Rebuilt  Califomia.  P.  A.  T.  B 

30 
31 
32 

L 

California,  sineie  trade 

KEY  TO  CLASS  OF  CABLE  CARS 

33 

X 

Dummy  and  trailer. 

34 

Y 

Double  truck; 

two  open  and  one  closed  sectioa. 

35 
36 

Z 

Double  truck; 

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TABLE  25— SUMMARY  TRAFFIC  COUNTS  BY  INDIVIDUAL  CAR  TRIPS— OUTBOUND  FROM  LOADING  DISTRICT 


TaU*2S 


ROUTE ^"c'if^*"'' 

Eddy 


McAllister 


Hayes 


Haight 


Market 


Valencia 


nh  and  Polk 


San  Mateo 


Sutter  and 
California 


Sutter  and 
Clement 


1620 
♦-56'-2S" 
5_29'-20" 

• 


1606 

4-58'-40" 

5-23'-55" 

37"  L. 

• 


1616 
♦-SS'-W 
5-34'-40" 
1'  10"  L. 


1521 
4-5r-30" 
S-12'-50" 

I'L. 


2.i01 

n 

tl3 

115 
39 


74 
0 


OBSERVATIONS 

Car  Numbers 1632                         1549                            180 

Duration  (start)  P.  M S-06'-10"               S-O2'-30"               4-59-30" 

Duration  fend)  P.  M 5-38'-26"                5-48'-00"                5-38'-O0" 

Off  time  leaving •                             0                                 * 

Oa  time  arriving •                              *                                 •                                                                                

Distance  in  Miles,  one  way 4.634                     6.819                      4.Mt                      3.941                      3.335                      4.556 

Number  of  Stops 48                             56                              48                             35                             24                             39 

Passengers  On.. 182                           152                            147                            126                           177                            181 

Passengers  Off 187                             146                              ISl                              129                             177                              178 

Cash  Fares 89                           lOS                            114                             98         135 136 

Transfers 0                             47                              Ti                             28                             41                              45 

Tickets 2                                 0                                  0                                  0                                 0                                 0 

Free  Rides 0                               0                                0                               0                                '                           ..? 

Total  Fares...:..:.; 182                           152                            147                            126                           177                            Ul 

Seating  Capacity 44  44                            44                           44     44 44_ 

Total  Time  cf  Stops 5'  37" 

Weather  Conditions Good 

RESULTS 

Maximum  Load 94 

%  Maximum  Load  to  Total  Fares SI. 6 

%   Maximum  Load  to  Seating  Capacity 213 . 6 

Average  Length  of  Ride  (Miles) 1.71 

Schedule  Speed  (Miles  per  Hour) 8.402 

Average  Speed  (Actual) 8.61                                

Average  Speed  0"s  Stops) 10.4                         10.22                         8.79                         8.3 

Average  Speed  Outside  Congested  Districts. 8  61                        10.9                           8.8                           8.47 

Stops  per  MUe  (.\vtrage) 10.38                        8.1                          9.87                        8.88 

Distance  Between  Stops  (Average  feet) 508.6                       652                            535                           *'%„., 

Average  Length  of  Stops  (Seconds) 70                             5.96                        6.6                          7.94 

%  Time  of  Stops  (to  Elapsed  Time) 17. 4                         12.23                      13.65         14.05 

%  Average  Passenger  Ride  to  Car  Haul _        36.9 

Origin  of  Route •  • ^°T^  %.^ 

Actual  Load  compared  with  typical  rush    hoiu:    loading  }  jj^  '.'... 

Comparison  of  typical  loading,  morning  with  evening  rush  hours,  |  j^^  '"     *  *' 

Distance  of  Maximum  Load  Point  from  origin  of  Route  in  Miles..  2.61                            1.6                            1.75                          1.68                       1.34                           1.34                         '04 

Date Apr.  19.  1912         Apr.  16.  1912         Apr.  23.  1912         Apr.  22.  1912         Apr.  17.  1912         Apr.  17.  1912         Apr.  22.  1912 


5'  34" 
Good 


93 
61.1 
211.3 
1.98 
9.09 
8.99 


5'  17" 
Good 


101 

68.7 
219.0 
1.86 
7.572 
7.58 


4'  38" 
Good 


104 
82.6 

236.4 
1.72 
7.882 
7.1 


6'  23" 
Moderate 


129 
72.9 

293.0 
1.9 
8.01 
7.93 


6'  27" 
Good 


129 
71.2 

293.0 
2.22 
8.238 
7.59 


4'  42" 
Good 


64 
56. < 
145.3 

0.86 

7.648 

6.91 


10.61 
11.1 
7.19 
736 
15.96 
25.3 


9.28 
9.44 
8.55 

618 
9.93 

18.4 


9.0 
7.5 

12.8 
412 
8.81 

20.2 


29.0 

Ferry 

10%  High 


5%  Lower 


58.5 


8%  Low 
30%  Lower 


43.6 
Ferry 

7%  Low 

9%  Lower 


57.0 
Ferry 

9%  High 


40%  Lower 


48  6 


erry 
%  High 


20% 


10%  Lower 


34.4 

9th  ft  Brannan 

9%  Low 
9  %  Lower 


5-01'-00" 

5-43'-05" 

I'L. 


140 
5-10'-<»0" 
5-47'-40" 


117 

4-5r-27" 

5-J4'-42" 

1'  27"  L. 

• 


6.266 

37 

155 

149 

111 


6.836 

51 

145 

132 

93 


6.858 

68 

156 

161 

77 


0 

0 

155 

56 


52 

0 

0 

145 

46 


7t 

0 

0 

156 

46 


5'  53" 
Good 


120 

77.4 
214.2 
2.81 
15.846 
9.04 


Good 


100 
69.0 

217.2 
2.45 
9.118 
8.35 


Good 


91 

58.3 
197.5 
2.03 
9.144 
9.51 


10.4 
11.2 

5.91 
894 

9.55 
14.02 


9.68 
7.46 
708 


9.65 
9.91 
533 


44  8 

5th  &  Market 

Average 

33%  Lower 


35.8 

Sutter-Sansome 

Average 


12%  Lower 


Sutter  and 
Jackson 


EIIU  and 
Ocean 


Hayes  and 

EIIU 


9th  and  Polk 


Fillmore  and 
i6th  bt.  to  23rd 


Fillmore  and 
Valencia 


152 

S-25'-30" 

5-52'-00" 

r  7"  L. 


1626 

5-03'-50" 

S-S4'-0S" 

10"  F. 

• 


3.239 

39 

137 

137 

86 


8.553 

60 

178 

174 

121 


51 

m 
u 


57 

0 

0 

178 


Good 


93 

67.8 
202.2 
1.5 
7.621 
7.26 


Good 

86 

48.3 
195.3 
1.64 
10.062 
10.22 


7.77 
12.0 
440 


11.02 
7.01 
753 


1526 

5-09'-4S" 

S-34'-30" 

45"  L. 


4.465 
38 
42 
45 

32 


10 

• 

0 

42 


Good 


33 

78 

75 

1 

8 

9 


6 

0 
7 

502 
2 


8  502 
8.5 
622 


29  6 

Sutter-Sansome 
13%  High 

8%  Lower 


46.3  19.2  38.0 

Sutter-Sansome  3rd  and  Townsend    Stoclrton-El'.is 
Average  5%  High 

50%  Low 


1511 

4-58'-00" 

5-20'-SS" 

30"  L. 


2.501 

32 

139 

141 

42 


97 

0 

0 

139 


7' 9" 
Good 


83 
59.7 
188.5 
0.92 
7.6a 
6.53 


9.36 
7.648 

13.0 
407 
7.46 

31.2 


1305 
5-10'-31" 
5-50'-50" 

31"  L. 


5.09 

91 

US 

244 

139 


103 

0 

0 

242 

42 


9' 30" 
Good 


105 

43.4 
250.0 
1.55 
8.724 
7.57 


11.57 
7.57 
10.0 
528 
11.2 
23.5 


1653 

5-37'-18" 

6-04'-08" 

5'  18"  L. 


.592 
35 
70 
68 
38 


32 

0 

0 

70 

44 


3'  42" 
Good 


48 

68.6 
109.1 
1.63 
8.61 

10.2 


10.15 
12.7 

7.63 
693 

6.35 
13.86 


Querrero  and 
Ocean  View 


Cemeteries  to 
County  Line 


1352 
5-O4'-07'' 

5-S7'-07" 
53"  F. 

• 


1234 

4-58'-44" 

5-47'-14" 

16"  F. 

• 


8.01 
52 
171 
175 
104 


67 

0 

0 

171 

42 


5'  49" 
Good 


107 
62.6 

254.5 
2.3 
9.608 
8.71 


9.29 
9.5 
6.49 
815 
6.7 
10.15 


70%  Lower 


10%  Lower 


20%  Lower 


36  8  30.4  35.5 

9th  and  Brannan  23rd  &  Kentucky  Rich! and- Mission 
10%  High  5%  High 

15%  Low 
•  •  25  %  Higher 


28.7 
Ferry 

8%  High 


30%  Lower 


1  87 
Apr.  18.  1912 


0.42 
Apr.  11.  1912 


0  43 
Apr.  11.  1912 


0  43 
Apr.  10,  1912 


1.5 
Apr.  16,  1912 


0.58 
Apr.  10,  1912 


1.64 
May  1.  1912 


2.29 
Apr.  29.  1912 


2.72 
Apr.  24.  1912 


1.75 
Apr.  25.  1912 


7.43 

51 

21S 

184t 

145 


87 

0 

0 

232 

48 


9'  45" 
Good 


119 
51.2 
247.8 
3.14 
10.746 
9.0 


24th  and 
Mission 


10.2 
10.0 
6.86 

771 
11.5 
17.93 


42.2 

Ferry 

24%  High 


4%  Lower 


1005 
5-09'-55" 
5-4S'-20" 

5"F. 

• 


4.8 

37 

141 

135 

94 


47 

e 

141 

42 


4'  21" 
Good 


99 
70.1 
235.5 
2.27 
8.225 
8.16 


9.28 
8.16 
7.71 
685 
7  OS 
12.23 


47.3 
Ferry 

7%  Low 

7%  Lower 


2.64 
Apr.  25.  1912 


1.82 
Apr.  26.  1912 


Sunnyside  and     Fillmore  and 
Qlen  Park        i*tli  to  Bryant 


1370 

5-00'-55" 

5-53'-20" 

1'  5"  F. 

• 


6.5 
51 
156 
148 
103 


53 

0 

0 

156 

42 


9'34" 
Pair 


115 

72.4 
269.0 
2.8 
8.478 
7.44 


9.1 

8.41 

7.85 

673 

11.25 

18.18 


43.1 

Ferry 

Average 


23%  Lower 


1304 
5-01'-48" 
5-2«'-43" 

42"  F. 


1338 

s-ir-oz" 

♦-Ol'-S?" 

I'r'L. 


515 
5-W-lS" 

4S-F 


3.094 

37 

230 

215 

178 


7  5 


536 


Z3 


52 

0 

0 

230 

42 


68 

• 
148 

42 


27 

• 
99 
28 


8'  14" 
Good 


104 

45.2 
247.5 
0.73 
8  724 
6.68 


8'2- 
Pa» 


80 

54.0 
190.4 
1.85 
9  378 
9.02 


I'sr- 


159. • 
9  4*1 
6  iSl 

7.« 


9.4 
8.9 
11.9 
444 

13.3 
29.6 


10.74 
10  4 

8  S3 
620 

7.53 
16  1 


8  2 

T  M 

II   t« 

472 

6  56 

14  31 


23  6  24.7 

16th  and  Bryant   Banks-Ooaftlaai 

Average  A«m0i 


41  O 


4%Losi 


45% 


2.92 
Apr.  26.  1912 


0  36 
Apr.  24.  1912 


2  99 
Apr.  29.  1912 


9  23 

Avr.J*.  t»U 


*  Observations  not  made. 


t  Passengers  remaining  on  cor  at  (bounty  Line  not  counted. 


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TABLE  25— SUMMARY  TRAFFIC  COUNTS  BY  INDIVIDUAL  CAR  TRIPS— OUTBOUND  FR 


ROUTE ^"EddJ"** 

OBSERVATIONS  " 

Car  Numbers 1632 

Duration  (start)  P.  M 5-06'-10" 

Duration  (end)  P.  M S-38'-26" 

Off  time  leaving * 

Off  time  arriving * 

Distance  in  Miles,  one  way 4.634 

Number  of  Stops 4* 

Passengers  On 182 

Passengers  Off 187 

Cash  Fares 89 

Transfers 0 

Tickets 2 

Free  Rides 0 

Total  Fares 182 

Seating  Capacity ^ 

Total  Time  of  Stops ^'rs^^'l 

Weather  Conditions Good 

RESULTS 

Maximum  Load 94 

%  Maximum  Load  to  Total  Fares 51.6 

%  Maximum  Load  to  Seating  Capacity 213 . 6 

Average  Length  of  Ride  (Miles) 1-71 

Schedule  Speed  (Miles  per  Hour) 8 .  402 

Average  Speed  (Actual) 8.61 

Average  Speed  (less  Stops) lO .  4 

Average  Speed  Outside  Congested  Districts 8.61 

Stops  per  Mile  (Average) 10. 38 

Distance  Between  Stops  (Average  feet) 508 . 6 

Average  Length  of  Stops  (Seconds) '0 

%  Time  of  Stops  (to  Elapsed  Time) 174 

%  Average  Passenger  Ride  to  Car  Haul ^        ?^«'„  , . 

Origin  of  Route ..-,.. PoweU  &  .Eddy 

Actual  Load  compared  with  typical  rush    hour    loading  i  j^^    ".'.'.'. 

Comparison  of  typical  loading,  morning  with  evening  rush  hours,  <  j^^  ^°     ** 

Distance  of  Maximum  Load  Point  from  origin  of  Route  in  Miles..  2.61 

Date Apr.  19.  1912 


McAllister 


1549 

5-02'-30" 

5-48'-00" 

0 

* 


6.819 

56 

152 

146 

105 


47 

0 

0 

152 

44 


5'  34" 
Good 


93 

61.1 
211.3 
1.98 
9.09 
8.99 


10.22 
10.9 

8.1 
652 

5.96 
12.23 


29.0 

Perry 

10%  High 

5%  Lower 


Hayes 


Haight 


180 
4-59  -30" 
5-38'-00" 


4.861 

48 

147 

151 

114 


33 
0 
0 

147 
46 


5'  17" 
Good 


101 

68.7 
219.0 
1.86 
7.572 
7.58 


8.79 

8.8 

9.87 

535 
6.6 

13.65 


38.3 
Ferry 

8%  Low 

30%  Lower 


1620 
4-56-25" 
5-29'-20" 


3.941 

35 

126 

129 

98 


28 
0 
0 

126 
44 


4'  38" 
Good 


104 

82.6 
236.4 
1.72 
7.882 
7.1 


8.3 
8.47 
8.88 
595 
7.94 
14.05 


43.6 
Ferry 

7%  Low 

9  %  Lower 


1.6 
Apr.  16.  1912 


1.75 
Apr.  23.  1912 


1.68 
Apr.  22.  1912 


Market 


1606 

4-58'-40" 

5-23'-S5" 

37"  L. 

« 


3.335 

24 

177 

177 

135 


41 

0 

1 

177 

44 


6'  23" 
Moderate 


129 
72.9 

293.0 
1.9 
8.01 
7.93 


10.61 
11.1 
7.19 
736 
15.96 
25.3 


Valencia 


1616 
4-58'-40" 
5-34'-40" 
1'  10"  L. 

* 


4.556 

39 

181 

178 

136 


45 

0 

0 

181 

44 


6'  27" 
Good 


129 
71.2 

293.0 
2.22 
8.238 
7.59 


9.28 
9.44 
8.55 

618 
9.93 

18.4 


9th  and  Polk         San  Mateo 


57.0 

Ferry 

9%  High 


40%  Lower 


48.6 

Ferry 

20%  High 


10%  Lower 


1521 
4-51 '-30" 
S-12'-50" 

I'L. 

• 


2.501 

32 

113 

115 

39 


74 

0 

0 

113 

44 


4'  42" 
Good 


64 

56.6 
145.3 
0.86 
7.648 
6.91 


9.0 
7.S 

12.8 
412 
8.81 

20.2 


34.4 
9th  &  Brannan 

9%  Low 

9  %  Lower 


5-01'-00" 

S-43'-05" 

I'L. 

4> 


6.266 

37 

155 

149 

111 


44 

0 

0 

155 

56 


5'  53" 
Good 


120 
77.4 
214.2 
2.81 
15.846 
9.04 


10.4 
11.2 
5.91 
894 
9.55 
14.02 


44.8 

5th  &  Market 

Aversige 


33  %  Lower 


Sutter  and 
California 


140 
5-10'-00" 
5-47'-40" 

* 


6.836 

51 

145 

132 

93 


S2 
0 

0 

145 

46 


* 
Good 


100 

69.0 
217.2 
2.45 
9.118 
8.35 


9.68 
7.46 
708 


35.8 

Sutter-Sansome 
Average 


12  %  Lower 


Sutter  and 
Clement 


117 
4-51'-27" 
5-34'-42" 

1'  27"  L. 

• 


6.858 
68 
156 
161 

77 


79 

0 

0 

156 

46 


Good 


91 

58.3 
197.5 
2.03 
9.144 
9.51 


9.65 
9.91 
533 


Sutter  and 
Jackson 


152 
S-25'-30" 
5-52'-00" 

1'  7"  L. 

• 


3.239 

39 

137 

137 

86 


51 

0 

0 

137 

46 


• 
Good 


67.8 
202.2 
1.5 
7.621 
7.26 


7.77 
12.0 
440 


Ellb 
Ocesn 


1626 

5-54'-0$" 
MTP. 


S.553 

60 

178 

174 

121 


57 

0 

0 

178 

44 


Good 


4S.3 
195.3 
1.64 
10.062 
10.22 


11.02 
7.01 
7S3 


29.6 

Sutter-Sansome 
13%  High 


8%  Lower 


46.3  19  2 

Sutter-Sansome  3rd  »i»d  T  _ 
Average  5  %  ffig^ 


70%  Lower 


10%  Lower 


1.34 
Apr.  17.  1912 


1.34 
Apr.  17,  1912 


1.04 
Apr.  22.  1912 


1.87 
Apr.  18.  1912 


0.42 
Apr.  11.  1912 


0.43 
Apr.  11.  1912 


0  43 
Apr.  10.  1912 


1.5 
Apr.  16.  1912 


L&26 


5-34'- K 
4S-  L. 


«.«ed 


45 

11 


19 

0 

42 


MM 

i-i 

9  . 


B  5 


y>%  L^«»»f 


•  SI 


•  Observations  not  made. 


t  Passengers  remaining  on  car  at  County  Line  not  counted. 


Table  25 


TRAFFIC  COUNTS  BY  INDIVIDUAL  CAR  TRIPS— OUTBOUND  FROM  LOADING  DISTRICT 


and  Polk 


1521 

-51'-30" 
5-12'-50" 
I'L. 


2.501 

32 

113 

115 

39 


74 

0 

0 

113 

44 


4'  42" 
Good 


64 

56.6 
145.3 
0.86 
7.648 
6.91 


9.0 
7.5 

12.8 
412 
8.81 

20.2 


34.4 
I  &  Brannan 

•%Low 

t%  Lower 

1.04 
Ir.  22.  1912 


San  Mateo 


S-Ol'-OO" 
5-43'-05" 

I'L. 

I* 


6.266 

37 

155 

149 

111 


44 

O 

0 

155 

56 


5'  53" 
Good 


120 

77.4 
214.2 
2.81 
15.846 
9.04 


10.4 
U.2 

5.91 
894 

9.55 
14.02 


44.8 

Sth  &  Market 

Average 


33  %  Lower 


Sutter  and 
California 


140 
5-10'-00" 

5-47'-40" 

* 


6.836 

51 

145 

132 

93 


52 

O 

0 

145 

46 


Good 


100 
69.0 

217.2 
2.45 
9.118 
8.35 


9.68 
7.46 
708 


35.8 

Sutter-Sansome 

Average 


12  %  Lower 


Sutter  and 
Clement 


117 

4-51'-27" 

5-^4'-42" 

1'  27"  L. 

* 


6.858 

68 

156 

161 

77 


79 

0 

0 

156 

46 


Good 


91 

58 

197 

2 

9 

9 


3 

5 

03 

144 

51 


9.65 
9.91 
533 


29.6 

Sutter-Sansome 
13  %  High 


8%  Lower 


Sutter  and 
Jackson 


152 

5-25'-30" 

5-52'-00" 

1'  7"  L. 

« 


3.239 

39 

137 

137 

86 


51 
0 
0 

137 
46 


« 
Good 


93 

67.8 
202.2 
1.5 
7.621 
7.26 


7.77 
12.0 
440 


Ellis  and 
Ocean 


1626 

5-03'-50" 

5-54'-0S" 

10"  P. 

• 


8.553 

60 

178 

174 

121 


57 

0 

0 

178 

44 


Good 


86 
48.3 
195.3 
1.64 
10.062 
10.22 


11.02 
7.01 
753 


Hayes  and 
EllU 


1526 
5-09'-45" 
5-34'-30" 

45"  L. 

« 


.465 
38 
42 
45 
32 


10 

0 

0 

42 

44 


Good 


33 

78.6 

75.0 

1.7 

8.502 

9.2 


8.502 
8.5 
622 


9th  and  Polk 


Fillmore  and 
1 6th  St.  to  23rd 


Fillmore  and 
Valencia 


1511 
4-58'-00" 
5-20'-55" 

30"  L. 


.501 

32 

139 

141 

42 


97 

0 

0 

139 

44 


7' 9" 
Good 


83 

59.7 
188.5 
0.92 
7.648 
6.53 


9.36 
7.648 
13.0 
407 
7.46 
31.2 


1305 
5-10'-31" 
5-50'-50" 

31"  L. 

• 


>.09 
51 

242 
244 
139 


103 

0 

0 

242 

42 


9'  30" 
Good 


IDS 
43.4 

250.0 
1.55 
8.724 
7.57 


11.57 
7.57 
10.0 
528 
11.2 
23.5 


1653 
5-37'-18" 
6-04'-08" 

5'  18"  L. 

* 


,592 
35 
70 
68 
38 


32 

0 

0 

70 

44 


3'  42" 
Good 


48 

68. 

109. 

1. 


6 
1 
63 


8.61 
10.2 


10.15 

12.7 

7.63 

693 

6.35 

13.86 


Guerrero  and 
Ocean  View 


46.3  19.2  38.0 

Sutter-Sansome  3rd  and  Townsend    Stockton-Ellis 
Average  5%  High 

50%  Low 


70%  Lower 


10%  Lower 


20%  Lower 


36.8  30.4  35.5 

9th  and  Brannan  23rd  &  Kentucky  Richland- Mission 
10%  High  5%  High 

15  %  Low 
m  *  25%  Higher 


1.87 
Apr.  18.  1912 


0.42 
Apr.  11.  1912 


0.43 
Apr.  11.  1912 


0.43 
Apr.  10,  1912 


1.5 
Apr.  16.  1912 


0.58 
Apr.  10,  1912 


1.64 
May  1.  1912 


2.29 
Apr.  29.  1912 


2.72 
Apr.  24.  1912 


1352 
5-04'-07" 
5-57'-07" 

53"  F. 

* 


8.01 

52 

171 

175 

104 


67 

0 

0 

171 

42 


5'  49" 
Good 


107 
62.6 

254.5 
2.3 
9.608 
8.71 


9.29 
9.5 
6.49 
815 
6.7 
10.15 


28.7 

Ferry 

8%  High 


30%  Lower 


1.75 
Apr.  25.  1912 


Cemeteries  to 
County  Line 


1234 
4-58'-44" 
5-47'-14" 

16"  P. 


7.43 
51 

232 

184t 
145 


87 

0 

0 

232 

48 


9'  45" 
Good 


119 
51.2 
247.8 
3.14 
10.746 
9.0 


10.2 
10.0 
6.86 
771 
11.5 
17.93 


42.2 

Ferry 

24%  High 


4%  Lower 


2.64 
Apr.  25.  1912 


1005 
5-09'-55" 
5-4S'-20" 

5"F. 

* 


4.8 

37 

141 

135 

94 


47 
0 
0 

141 

42 


4' 21" 
Good 


99 

70.1 
235.5 
2.27 
8.225 
8.16 


9.28 
8.16 
7.71 
685 
7.05 
12.23 


47.3 
Ferry 

7%  Low 

7  %  Lower 


34th  and         Sunnyside  and     Fillmore  and 
Mission  Qlen  Park        16th  to  Bryant 


1  82 
Apr.  26.  1912 


Mission  and 
Richmond 


1370 
5-00'-55" 
5-53'-20" 

V  5"  F. 

* 


6.5 
51 
156 
148 
103 


53 

0 

0 
156 

42 


9'  34" 
Fair 


113 

72.4 
269.0 
2.8 
8.478 

7.44 


9.1 

8.41 

7.85 

673 

11.25 

18.18 


43.1 

Ferry 

Average 


23  %  Lower 


2  92 
Apr.  26.  1912 


1304 
5-01'-48" 
5-29'-13" 

42"  F. 

* 


3.094 

37 

230 

215 

178 


52 

0 

0 

230 

42 


8'  14" 
Good 


104 

45.2 
247.5 
0.73 
8.724 
6.68 


9.4 

8.9 

11.9 

444 

13.3 

29.6 


1338 
5-1 2 '-02" 
6-01'-57" 

1'  2"  L. 

* 


7.5 

64 

148 

136 

80 


68 

0 

0 

148 

42 


8' 2" 
Fair 


80 

54.0 
190.4 
1.85 
9,378 
9.02 


10.74 
10.4 
8.53 
620 
7.53 
16.1 


23.6  24.7 

16th  and  Bryant  Banks- Courtland 

Average  Average 


Powell  and 
Mason 


515 
5-10'-15" 
5-24'-O0" 

45"  P 

« 


1,608 
18 
50 
48 
23 


27 

0 

0 

50 

28 


1'  58" 
Good 


42 

84.0 
150.0 
0.691 
6.031 
7.02 


8.2 

7.08 
11.19 
472 

6.56 
14.31 


4%  Lower 


45  %  Lower 


43.0 
Powell-Eddy 

4%  Low 

30%  Lower 


0.36 
Apr.  24,  1912 


2.99 
Apr.  29,  1912 


0.23 
Apr.  30,  1912 


REDUCTION 


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TABLE  25---SUMMARY  TRAFFIC  COUNTS  BY  INDIVIDUAL  CAR  TRIPS— OUTBOUND  FROM  LOADING  DISTRICT— Continued. 


ROUTE. 


Car  Numbert 

Duration  (*tart)  P.  M . 
Duration  (end)  P.  M . . 

Off  time  leaving 

Off  time  arriving 


OBSERVATIONS 


Distance  in  Miles,  one  way 
Number  of  Stops . 
PMsengen  On ... . 
PaaaenBen  Off. . . . 
Cash  Pares 


Transfers 

TicVcets 

Free  Rides 

Total  Fares 

Seating  Capacity. 


Total  Time  of  Stops 
Weather  Conditions . 

RESULTS 

Maximum  Load 

%  Maximum  Load  to  Total  Fares 

%   Maximum  Load  to  Seating  Capacity . 

Average  Length  of  Ride  (Miles) 

Schedule  Speed  (Miles  per  Hour) 

Average  Speed  (Actual) 


Average  Speed   (less  Stops) 

Average  Speed  Outside  Congested  DistricU. 

Stops  per  Mile  (Average) 

Distance  Between  Stops  (Average  feet) 
Average  Length  of  Stops  (Seconds).... 
%  Time  of  Stops  (to  Elapsed  Time) .  . 


»High 
(  Low. 


Powell  and 
Jackson 


Kearny 
and  Beach 


Kentucky 


Fotooin 


519 

5-I2'-l7" 

5-33'-00" 

13"  F. 


1414 

4-.'52'-25" 

4-16'-27" 

15"  L. 

• 


1423 

4-5 t '-59" 

S-t5'-24" 

0 

• 


1739 

5-03'-25" 

5-32'-l5'' 

35"  F. 


2.231 
26 
76 
73 
49 


637 
35 
93 
94 
55 


6  58 

60 
235 
241 
180 


4.01 

34 

UO 

IW 

too 


27 

0 

0 

76 

28 


38 

0 

0 

93 

42 


55 

0 

0 

235 


20 

0 

• 

120 


4'  23" 
Good 


S4 

71.0 
192  9 
0.951 
6.372 
6.61 


4' 44" 
Good 


S7 
61.3 

135.7 
0.733 
6.588 
6.36 


15'21"(o) 
Good 


125 
53.2 

284.2 
2.2 
8.214 
7.38 


4'  35" 
Good 


«4 

TS.3 
213.5 

1.785 
8.024 
8.34 


8.3 

«.7 
ll.«S 
454 

10.1 
21.1 


8.18 

6.64 

13.25 

398 

8.1 

19.8 


8.81 

9.37 

9.1 

S81 

15.33 

29.3 


*.U 
t.S« 
t.M 

622 
8.4 
15.9 


%  Average  Passenger  Ride  to  Car  Haul 
Wgin  of  Route 

Actual  Load  compared  with  tyirical  rush  hour  loading 
Comparison  of  typical  loading,  morning  with  evening  rush  hours,  J  n,^ 


42.9 

Powell-Eddy 

Average 


25  %  Lower 


27.8 
3rd  ft  Townsend 

20%  Low 

40%  Lower 


30.7 

Ferry 

Average 


44.5 

Ferry 
Average 


Bryant 


Eighth  and 
Elthteenth 


1384 

5-07'-40" 

S-35'-45" 

20"  F. 

• 


693 

5-05'-09" 

5-34'-00" 

17'  9"  L. 

19*  L. 


3.51 
30 
216 
214 
166 


4  0 
34 
73 
74 
31 


50 

0 

0 

216 

42 


42 
0 
0 

73 


4'  1" 
Good 


Ml 
74. S 

383.2 

2.0 

7.624 

7.52 


4'  47" 
Good 


68 

93.1 

154.3 

2   1 

9.5 

8.62 


8.78 
7.52 
8.54 
618 
8.03 
14.26 


10  0 
8.86 
8.5 
621 
8.35 

16.45 


13%  Lower  30%  Lower 


57.0 

2nd  and  Howard 

50%  High 

15%  Higher 


52.5 

8th  ft  Harrison 

4%  High 


12  %  Lower 


Qeary 

(Cable) 


14 

5-o;'-50" 
5-39'-00" 
1'  10"  P. 

• 


3  805 
19 
46 
41 


0 

0 

0 

46 

39 


r  37" 

Good 


42 
91.3 

107  6 
2.1 
7.49 
7.28 


7.72 
7.9 
5.0 
1056 
5.1 
5.2 


JMission 


1569 

5-08'-25" 

5-51 '-40" 

35"  F. 

• 


6.266 

41 

239 

an 


90 
0 

0 

sw 

44 


7'  13" 
Good 


143 
59.8 

325.0 
2.58 
8.01 
9.15 


10.45 
11.7 
6.S4 

808 
10  6 
16  71 


Sacramento 


Ingleside 


Qeary 

(Cable) 


15 

5-05'-17" 

5-23'-37" 

43"  F. 

• 


1722 

S-09'-55" 

6-10'-55" 

1'  55"  L. 

5'  25"  L. 


13 
5-0S'-27" 
5-38'-52" 


2.254 
19 
62 
62 
SO 


10.253 
66 
196 
198 
124 


3.79S 
27 
67 
M 
C7 


12 

0 

0 

62 

36 


72 

0 

0 

196 

44 


0 

0 

0 

C7 

39 


2'  25" 
Good 


4t 

77.4 
133.2 

1.225 
6.834 

7.14 


12'  6" 
Good 


Ml 

72.0 
320.5 
3.38 
10.254 
10.17 


4'  12" 
Good 


57 

85.1 
146.1 
2.02 
7.49 
6.97 


8.45 
7  82 
8.44 
625 
7.64 
13.17 


12.71 
11.3 
6.44 
820 
10.97 
20.0 


7.79 
7  49 
7.11 
742 
9.34 
12.58 


55.1 
Geary  ft  Market 

* 


41.1 

5th  ft  Market 

45  %  High 


54.3 

Ferry 


33.0 
Ferry 
10%  High 


15%  Lower 


California 


6 
S-IO'-OO" 
5-31 '-45" 


2.S 

24 

•» 
M 

n 


11 

0 

0 

M 

34 


2'  34" 
Good 


66 

74.2 
194.1 

0.688 
8.4 

7.7 


8.76 
7.7 
8.5« 
61S 
6.41 
11.81 


Jones  and 
Hyde 


54 
S-O7'-30" 
5-26'-40" 


2  07 
21 
87 
80 
62 


25 

0 

0 

87 

24 


4'  1" 
Good 


59 

67  8 
145  8 
0  82 
7  75 
6  5 


8  18 

6  5 

10.1 

522 

11.49 

20  83 


Unton 


6 
S-12'-38" 
5-45'-i3" 


655 

5-04'-S8" 

5-38'-13" 

2"  F 


3  804 

36 

111 

112 

64 


.008 

32 

143 

155 

68 


47 

0 

0 

HI 

28 


75 

0 

0 

143 

30 


5'  16" 
Cloudy 


83 

74.7 
296.3 
1.386 
7.36 
6.91 


4'  23" 
Good 


89 
62.2 
296.4 

1.36 
11.022 

8.7 


8.2 
8.8 
9.47 
557 
8.79 
15.9 


10.4 
9.82 
6.38 
827 
8  22 

13   18 


52  6  24  6  39  6  36.5 

Geary  ft  Market   Calif,  ft  Market  O'FarreU-Grant  Ave         Ferry 
•  •  •  • 


EiKhteenth  Eighteenth 


651 

S-09'-50" 

S-38'-30" 

10"  F 

30"  L 


5.008 

30 

122 

113 

51 


71 

0 

0 

U2 

30 


4'  26" 
Good 


79 
64.7 
263.0 

1.42 
11.022 

8.58 


12.32 

9  9 

5  99 

881 

8  86 

15.42 


Ninth  and 
Polk 


1521 

S-35'-0S" 

5-S5'-05" 

55"  F 


.501 
28 
52 
48 
31 


21 

0 

0 

52 

44 


2'  46" 
Good 


32 

61.5 

72  8 
0  866 
7.648 
7.38 


8.69 
7.38 
11.2 
471 

5  93 

13.73 


27.2  28.4  -14  5 

8th  ft  Harrison    8ih  &  Harrison    9th  and  Brannan 
18%  High  5.5%  High 


Castro 
Cable 


1 


S-24'-05" 

5-3?'-70" 

l'.«  '  P 


0.893 

7 

81 

81 

1 


00 

0 
0 

•1 

36 


I'zr 

Moderate 


81 

100.0 

225.0 
0.54 
6.123 
6.7 


7.8 

6.7 

7.83 

675 

11.7 

19  4 


35%  Lower  21%  Lower 


50%  Low 
9%  Lower 


60.4 

18th  and  Castro 

50%  High 

Average 


Distance  of  Maximum  Load  Point  from  origin  of  Route  in  Miles. 
Date 


0.17 
Apr.  30.  1912 


1  01 
May  1,  1912 


1.56 
May  2.  1912 


1.43 
May  3,  1912 


1.91 
May  3.  1912 


1.29 
May  6,  1912 


0.537 
May  2,  1912 


1.7 
May  10.  1912 


6.80 
May  7.  1912 


2.64 
May  7,  1912 


0  537 
Apr.  23,  1912 


0.6 
May  9.  1912 


0.98 
May  9.  1912 


1.77 
May  8.  1912 


2.10 
May  8.  1912 


2   10 
May  10.  1912 


1.77 
Apr.  22.  1912 


0.0 
Apr.  17,  1912 


Sixth  and 
Sansomc 


616 

5-04'-00" 

S-32'-00" 

O.K. 


2.85a 
32 
S9 

58 
55 


4 

0 

• 

59 

29 


7'  39"  (6) 
Good 


40 

67.8 
138.0 
0.62 
7.154 
7.SS 


8  44 
7.86 
11.2 

47! 
14  3 
27.3 


21.6 

10%  Low 

5  %  Lower 


Tenth  and 
Montgomery 


Tenth  mmd 
Montcomcry 


0.46 
June  19,  1912 


619 

S-20'-«0" 

5-43'-00" 

40" 


2.791 
JO 
44 
44 
36 


• 

1 

44 

29 


4'  22" 
Good 


25 

56.8 

86.0 

1.1 

7.2S 

7.S 


8.65 
8.9 

10.8 
491 
8.7 

22.0 


99.4 


0  6 
July  9.  1912 


619 
4-56'-30" 
S-18'-S©" 
30" 


1741 

5-ocr-«5" 


Apvnss.  tr 


s-jr-w 


2.791 

2S 

17 

17 

8 


4.303 

«• 
127 
125 

72 


S  31 

49 

in 


• 

0 
0 

17 
29 


127 


I 
ITl 


3'  IS" 
Coed 


S 
47.0 
37.6 

0.7 

7.28 

7.5 


r  24"  U) 
Good 


71.6 
206.7 
l.W 
•.706 
S.07 


sr  ar 


74  • 

IMS 
2-3S 

•  I0> 

•  S 


8  82 
8  8 

8  96 
589 
7.8 
14  6 


10  97 

8  73 

9  U 

12  6 
24  7 


a  « 

•  2 
573 
6  S 

14  7 


SS.t 


45  3 


«•  2 


0  45 
July  9.  1912 


2.73 
Jnty.  M  1W2 


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TABLE  2S-SUMMARY  TRAFFIC  COUNTS  BY  INDIVIDUAL  CAR  TRIPS-OUTBOUND  FRC 


Powell  and 

ROUTE Jackson 

OBSERVATIONS 

Car  Numbers -  , ^}. .,„ 

Duration  (start)  P.  M c",  v_Aft" 

Duration  (end)  P.  M t  V' P 

Off  time  leaving ^-^  ^'  " 

Off  time  arriving 

,— — —————— ^  _   -  -  J 

Distance  in  Miles,  one  way *  •  Yjc 

Number  of  Stops i^ 

Passengers  On yj 

Passeiwers  Off aq 

Cash  Fares 

— — — <                        -                               — ~  27 

Transfers q 

Tickets q 

Free  Rides y^ 

Total  Fares 28 

Seating  Capacity 

— — ___-_——.———— ^————^— ———"'  ,    .„ 

Total  Time  of  Stops q^^^j 

Weather  Conditions 

RESULTS 

Maximum  Load 5?  f. 

%  Maximum  Load  to  Total  Fares loo  n 

%  Maximum  Load  to  Seating  Capacity n  o«;i 

Average  Length  of  Ride  (Miles) "-^^^ 

Schedule  Speed  (Miles  per  Hour) »-^'^ 

Average  Speed  (Actual) ^  °* 

Average  Speed   (less  Stops) ^  •  ? 

Average  Speed  Outside  Congested  Districts 1 1  65 

Stops  per  Mile  (Average) aU 

Distance  Between  Stops  (Average  feet) in  l 

Average  Length  of  Stops  (Seconds) *Y'  i 

%  Time  of  Stops  (to  Elapsed  Time) '^^ •  * 

%  Average  Passenger  Ride  to  Car  Haul Powtfl-Eddy 

Origin  of  Route l"  '    "  * '  VHigh" '.  V.!  Average 

Actual  Load  compared  with  typical  rush  hour  loading     J  Lo^ 

u  u  S  High 

Comparison  of  typical  loading,  morning  with  evening  rush  hours,  ^  Lq^  jS  %  Lower 

Distance  of  Maximum  Load  Point  from  origin  of  Route  in  MUes. .  £:*L«o 

Date ^P'-  ^^'  *'" 


Kearny 
and  Beach 


1414 
4-52 '-2  5" 
5-16'-27" 

15"  L. 

* 

2  637 
35 
93 
94 
55 


38 
0 

0 
93 
42 


4'  44" 
Good 


57 

61.3 
135.7 
0.733 
6.588 
6.36 


8.18 
6.64 

13.25 
398 
8.1 

19.8 


27.8 
3rd  &  Townsend 

20%  Low 

40%  Lower 


1.01 
May  1.  1912 


Kentucky 


1423 
4-51'-59" 
5-45'-24" 
0 

* 


6.58 
60 

235 
241 
180 


55 

0 

0 

235 

44 


15' 21"  (a) 
Good 


125 
53.2 

284.2 
2.2 
8.214 
7.38 


8.81 

9.37 

9.1 

581 

15.35 

29.3 


30.7 

Ferry 

Average 


13%  Lower 


1.56 
May  2,  1912 


Folsom 


1739 
5-03'-25" 
5-32'-15" 

35"  F. 

* 


4.01 
34 
120 
119 
100 


20 

0 

0 

120 

44 


A'  35" 
Good 


94 

78.3 
213.5 
1.785 
8.024 
8.34 


9.88 
8.84 
8.48 
622 
8. 
15. 


.4 
.9 


44.5 

Ferry 

Average 


30%  Lower 


Bryant 


1384 
5-07'-40" 
5-35'-45" 

20"  F. 

* 


3.51 
30 
216 
214 
166 


50 

0 

0 

216 

42 


4'  1" 
Good 


161 
74.5 

383.2 
2.0 
7.624 
7.52 


8.78 
7.52 
8.54 
618 
8.03 
14.26 


Eighth  and 
Eighteenth 


57.0 

2nd  and  Howard 

50%  High 

15%  Higher 


693 

5-05'-09" 
5-34'-00" 
17'  9"  L. 
19' L. 


4  0 
34 
73 
74 
31 


42 

0 

0 

73 

44 


4'  47" 
Good 


68 

93.1 

154.3 

2.1 

9.5 

8.62 


10.0 
8.86 
8.5 
621 
8.35 

16.45 


52.5 

8th  &  Harrison 

4%  High 


12%  Lower 


Geary 

(Cable) 


14 

5-07'-50" 
5-39'-O0" 

1'  10"  F. 

* 


805 
19 
46 
45 

46 


0 

0 

0 

46 

39 


1'  37" 
Good 


42 

91.3 
107.6 
2.1 
7.49 
7.28 


7.72 
7.9 
5.0 
1056 
5.1 
5.2 


Mission 


1569 
5-08'-25" 
5-5r-40" 

35"  F. 

* 


6.266 

41 

239 

211 

149 


90 

0 

0 

239 

44 


7'  13" 
Good 


143 
59.8 

325.0 
2.58 
8.01 
9.15 


10.45 
11.7 
6.54 
808 
10.6 
16.71 


55.1 
Geary  &  Market 


Sacramento 


1.43 
May  3,  1912 


1.91 
May  3.  1912 


1.29 
May  6.  1912 


0.537 
May  2.  1912 


41.1 

5th  &   Market 

45%  High 


1.7 
May  10.  1912 


15 
5-0S'-17" 
5-23'-37" 

43"  F. 

* 


.254 
19 
62 
62 
50 


12 

0 

0 

62 

J6 


2'  25" 
Good 


48 

77.4 
133.2 
1.225 
6.834 
7.14 

8.45 
7.82 
8.44 
625 
7.64 
13.17 


54.3 
Ferry 

« 


Ingleside 


1722 

5-09'-55" 

6-10'-55" 

1'  55"  L. 

5'  25"  L. 


10.253 
66 
196 
198 

124 


72 
0 

0 

196 

44 


12'  6" 
Good 


141 

72.0 
320.5 
3.38 
10.254 
10.17 


12.71 
11  3 
6.44 
820 
10.97 
20.0 


33.0 
Ferry 
10%  High 


15%  Lower 


6.80 
May  7.  1912 


Geary 
(Cable) 


13 
5-05'-27'' 
5-38'-52" 

• 
* 


3.795 
27 
67 
61 
67 


• 

0 

67 

39 


4'  12" 
Good 


Sf 
85.1 
146.1 

2.02 
7.49 
6.97 


7.79 
7.49 
7.11 
742 
9.34 
12.58 


Califorate 


6 
S-MT- 
$-31'-W 


2  8 
24 

m 

9S 

78 


11 

O 

• 

99 

34 


2*34- 
Good 


74.2 
194.1 

e 

S.4 

7.7 


8  76 
7.7 
8  58 
615 
6  41 
11.81 


52  6  24  6 

Geary  &  Market    Calif,  ft  Maflert  O 
•  • 


2.64 
May  7.  1912 


0  537 
Apr.  23.  1912 


0  6 
May  9   1912 


(a)  Delay  3'29"  on  account  of  Team  Traffic . 


Table  25 
(Confd) 


TRAFFIC  COUNTS  BY  INDIVIDUAL  CAR  TRIPS— OUTBOUND  FROM  LOADING  DISTRICT— Continued. 


Id 
th 


Geary 

(Cable) 


14 

5-0  7 '-50" 
5-39'-O0" 
1'  10"  F. 

* 


805 
19 
46 
45 
46 


0 
0 
0 

46 
39 


r  37" 
Good 


42 

91.3 
107.6 
2.1 
7.49 
7.28 


7.72 
7.9 
5.0 
1056 
5.1 
5.2 


Mission 


1569 
S-08'-25" 
5-51 '-40" 

35"  F. 

* 


6.266 

41 

239 

211 

149 


90 
0 
0 

239 
44 


V  13" 
Good 


143 

59.8 
325.0 
2.58 
8.01 
9.15 


10.45 
11.7 
6.54 
808 
10.6 
16.71 


55.1 
Geary  &  Market 


Sacramento 


41.1 

5th   &   Market 

45  %  High 


M2 


0.537 
May  2.  1912 


1.7 
May  10.  1912 


15 

S-05'-17" 

5-23'-37" 

43"  F. 

* 


2.254 
19 
62 
62 
50 


12 

0 

0 

62 

36 


2'  25" 
Good 


48 

77.4 
133.2 
1.225 
6.834 
7.14 


8.45 
7.82 
8.44 
625 
7.64 
13.17 


54.3 
Ferry 


Inicleside 


1722 

5-09'-55" 

6-10'-55" 

1'  55"  L. 

5'  25"  L. 


6.80 
May  7.  1912 


10.253 

66 

196 

198 

124 


72 

0 

0 

196 

44 


12'  6" 
Good 


141 

72.0 
320.5 
3.38 
10.254 
10.17 


12.71 
11.3 
6.44 
820 
10.97 
20.0 


33.0 

Ferry 
10%  High 


15%  Lower 


Qeary 
(Cable) 


13 
5-05'-27" 
5-38'-52" 

* 


795 
27 
67 
61 
67 


0 
0 
0 

67 
39 


4'  12" 
Good 


57 

85.1 
146.1 
2.02 
7.49 
6.97 


7.79 
7.49 
7.11 
742 
9.34 
12.58 


California 


6 

S-IO'-OO" 
5-31 '-45" 

* 
* 


2.8 
24 
89 
95 
78 


11 

0 

0 

89 

34 


2'  34" 
Good 


66 

74.2 

194.1 

0.688 

8.4 

7.7 


76 

7 


8 
7 

8.58 
615 
6.41 
11.81 


Jones  and 
Hyde 


54 

5-07 '-30" 
5-26'-40" 

* 
« 


2.07 
21 
87 
80 
62 


25 

0 

0 

87 

24 


4'  1" 
Good 


59 

67  8 
145  8 
0.82 
7.75 
6.5 


8  18 

6.5 

10.1 

522 

11.49 

20  83 


Union 


5-12'-38" 
5-45'-43" 

« 
« 


2.64 
May  7.  1912 


0.537 
Apr.  23,  1912 


0.6 
May  9.  1912 


0.98 
May  9.  1912 


.804 

36 

111 

112 

64 


47 

0 

0 

111 

28 


5'  16" 
Cloudy 


83 

74.7 
296.3 
1.386 
7.36 
6.91 


8.2 
8.8 
9.47 
557 
8.79 
15.9 


52.6  24.6  39.6  36.5 

Geary  &  Market   Calif.  &  Market  O'Farrell-Grant  Ave         Ferry 
•  »  ♦  * 


655 
5-04'-58" 
5-38'-13" 
2"  F 


.008 

32 

143 

155 

68 


75 

0 

0 

143 

30 


4'  23" 
Good 


89 

62.2 
296.4 
1.36 
11.022 
8.7 


4 

82 

38 


10 

9 

6 

827 

8.22 

13.18 


27.2 

8th  &  Harrison 

18%  High 


Eighteentli  Eigtiteenth 


651 

5-09'-50" 

5-38'-30" 

10"  F 

30"  L 


.008 

30 

122 

113 

51 


71 
0 

0 

122 

30 


4'  26" 
Good 


79 

64.7 
263.0 

1.42 
11.022 

8.58 


12.32 

9.9 

5.99 

881 

8.86 

15.42 


Ninth  and 
Polk 


1521 

5-35'-05" 

5-55'-0S" 

55"  F 


.501 
28 
52 
48 

31 


21 
0 
0 

52 

44 


2'  46" 
Good 


32 

61.5 

72.8 
0  866 
7.648 
7.38 


8.69 
7.38 

11.2 
471 
5.93 

13.73 


1.77 
May  8.  1912 


28.4  34.5 

8th  &  Harrison    9th  and  Brannan 
5.5%  High 

50%  Low 

35  %  Lower  2 1  %  Lower  9%  Lower 

2   10  2.10  1.77 

May  8.  1912  May  10.  1912       Apr.  22.  1912 


Castro 
Cable 


1 
5-24'-05" 
5_32'_20" 

1'5'F 

* 

0.893 

7 

81 

81 

1 


80 
0 
0 

81 

36 


1'22' 
Moderate 


81 

100.0 

225.0 
0.54 
6.123 
6.7 


7.8 

6.7 

7.83 

675 

11.7 

19.4 


60.4 

18th  and  Castro 

50%  High 

Average 


0.0 
At»r.  17.  1912 


Sixth  and 
Sansome 


616 

5-04'-00" 

S-32'-O0" 

O.K. 

* 


2.858 
32 
59 
58 
55 


4 

0 

0 

59 

29 


V  39"  (6) 
Good 


40 

67.8 
138.0 
0.62 
7.154 
7.55 


8.44 
7.86 
11.2 
471 
14.3 
27.3 


21.6 

10%  Low 
S  %  Lower 


Tenth  and 
Montgomery 


0.46 
June  19.  1912 


(6)  4  minutes  delay  at  Broadway. 


619 
S-20'-40" 
5-43'-00" 
40" 

« 


2.791 
30 
44 
44 
36 


6 

0 

2 

44 

29 


4'  22" 
Good 


25 

56.8 

86.0 

1.1 

7.28 

7.5 


8.65 
8.9 

10.8 
491 
8.7 

22.0 


39.4 


Tenth  and 
Montgomery 


Howard 


619 
4-56'-30" 
S-18'-50" 
30" 

* 


2.791 
25 
17 
17 

8 


8 

0 

0 

17 

29 


3'  15" 
Good 


8 
47.0 
27.6 
0.7 
7.28 
7.5 


8.82 
8.8 
8.96 
589 
7.8 
14.6 


25. J 


1741 

S_00'-05" 

5-32' -00" 

Approx.  10* 


8'  24"  (c) 
Good 


91 

71.6 
206.7 
1.99 
8.796 
8.07 


10.97 
8.73 
9.12 
580 
12.6 
24.7 


45.3 


San  Bruno 


744 

4-57'-O0" 

S-34'-29" 

0 

* 


5.31 

49 

171 

169 

69 


63 
0 
1 

171 
44 


5'  ii" 
Good 


128 
74.8 

290.5 
2.35 
8.382 
8.5 


9.98 
8.81 
9.2 
573 
6.8 
14.7 


44.2 


0  6  0  45  2.73  1.65 

July  9.  1912  July  9.  1912  July.  10  1912         July  11.  1912 


(c)  2'20"  delay  at  Stewart  account  construction  work. 


TABLE  26— RECOMMENDED  RUSH-HOUR  ROUTING 
AND  SERVICE  DISTRIBUTION 

UNITED  RAILROADS  LINES 


Table  26 


Route 

Sutter  and 
California. 


Sutter  and 
Clement. 


Sutter-Presidio. 
Eddy-Hayes. 
Eddy-Richmond. 
McAllister. 


Hayes. 


Hayes-Sunset. 


Haight. 
Haight-Ocean. 


Market. 

Valencia. 

Sunnyside. 

24th  and  Mission. 

Ingleside. 
Cemeteries. 


Routing — Outbound  Trips 

Ferry  via   Market,   Sutter,   Presidio,   California,  33rd 

Avenue  to  Beach 5 

Ferry  via  Market,  Sutter,  Presidio,  California  to  33rd 

Avenue •••  •     5 

Sansome-Bush-Montgomery  loop  via  Sutter,  Presidio, 

California  to  33rd  Avenue 5 

Ferry  via  Market,  Sutter,  Presidio,  CaHfornia,  Parker, 

Clement  to  Beach 10 

Sansome-Bush-Montgomery  loop  via  Sutter,  Presidio, 

CaHfornia,  Parker,  Clement  to  33rd 8 

Sansome-Bush-Montgomery  loop  via  Sutter,  Presidio 

to  Jackson 6 

Eddy  and  Market  via  Eddy,  Divisadero,  Hayes, 
Stanyan  to  Fulton 10 

Eddy  and  Market  via  Eddy,  Divisadero,  McAllister, 
Fulton,  8th  Avenue  to  Clement 12 

Ferry  via  Market,  McAllister,  Fulton  to  Beach 6 

Ferry  via  Market,  McAllister,  Fulton  to  13th  Av 4 

Ferry  via  Market,   McAllister,   Fulton  to  car  barns..  10 

Ferry  via  Market,  Hayes,  Fillmore.  Oak  and  Page, 
Masonic,  Frederick,  Clayton,  Cole,  Stanyan,  Par- 
nassus, 9th  Avenue  to  Pacheco    10 

Ferry  via  Market.  Hayes,  Fillmore,  Oak  and  Page, 
Masonic,  Frederick,  Oayton,  Cole  to  Stanyan 5 

5th  and  Market  via  5th,  Mission,  10th,  Hayes,  Fillmore, 
Page  and  Oak,  Stanyan,  Lincoln  Way,  20th  Avenue 
to  Boulevard 4 

5th  and  Market  via  5th,  Mission,  10th,  Hayes,  Fillmore, 
Page  and  Oak,  Stanyan.  Lincoln  Way  to  20th  Avenue     8 

Ferry  via  Market,  Haight  to  Stanyan 25 

1st  and  Market  via  1st,  Mission,  12th,  Market,  Haight, 
Stanyan,  Lincoln  Way  to  Beach 10 

1st  and  Market  via  1st.  Mission.  12th,  Market,  Haight, 
Stanyan,  Lincoln  Way  to  20th  Avenue 6 

Ferry  via  Market,  Castro,  18th  to  Danvers 12 

Ferry  via  Market,  Castro  to  18th 20 

Ferry  via  Market,  Valencia,  Mission,  29th  to  Noe 26 

Ferry  via  Market,  Valencia  to  Mission ■.     9 

lst-Folsom-2nd  loop  via  Mission.  14th,  Guerrero,  30th, 
Chenery,    Diamond,    Sunnyside    to    Genesee 7 

lst-Folsom-2nd  loop  via  Mission,  14th,  Guerrero,  30th, 
Chenery,  Diamond  to  Bosworth 5 

Ferry  via  Mission,  22nd,  Dolores  and  Chattanooga, 
24th  to  Hoffman ; 14 

1st  and  Market  via  Mission,  22nd.  Dolores  and  Chat- 
tanooga, 24th  to  Hoffman 14 

Ferry   via   Mission,   Onondaga,   Ocean,   Boulevard  to 

Beach   6 

Ferry  via  Mission.  Onondaga,  Ocean  to  Boulevard. ...     2 

Ferry  via  Mission  to  Cemeteries 6 


! 

i  * 


Table  26 
(Cont'd) 


tUt 


iMf 


I'll ' 


If' 


TABLE  26-RECOM MENDED  RUSH-HOUR  ROUTING 
AND  SERVICE  DISTRIBUTION 

CONTINUED 

Route  Routing — Outbound  Trips 

Kearny-Beach.         From  depot  via  Townsend,  3rd,  Kearny,  Broadway, 

Stockton,   Union,  and   Powell   to  Jefferson 15 

Kearny-                   Broadway  via  Kearny,  3rd,  Berry,  4th,  Kentucky,  Rail- 
Broadway,  road  Avenue  to  32nd  Avenue  So 93^4 

Kentucky.                 Ferry  via  East,  Broadway,  Kearny,  3rd,  Berry,  Ken- 
tucky, Railroad  Avenue  to  County  Line 6 

Ferry  via  East,  Broadway,  Kearny,  3rd,  Berry,  Ken- 
tuckv.  Railroad  Avenue  to  32nd  Ave.  So Ij^ 

Mission-                   5th  and  Market  via  5th,  Howard,  14th,  Mission  to  Daly 
Daly  City.  City 9 

Mission.  2nd  and  Market  via  2nd,  Mission  to  Onondaga 11 

9th  and  Polk.  Brannan  via  9th,  Larkin,  Post,  Polk  to  Lombard 18 

Ellis-Richmond.      Mail  Dock  via  Townsend,  4th,  Ellis,  Hyde,  O'Farrell, 

Divisadero,  Sacramento,  6th  Avenue  to  Fulton,...     7 
Depot    via    Townsend,    4th,    EUis,    Hyde,    O'Farrell, 
Divisadero,  Sacramento,  6th  Avenue  to  Fulton 14 

Ellis-Fillmore-         Market  and  Ellis  via  Ellis,  Hyde,  O'Farrell,  Fillmore, 
Jackson.  Jackson  to  Presidio 10 

Fillmore  and  16th.  23rd  and   Kentucky  via  Kentucky,   18th,  Connecticut, 

17th,  Kansas,  16th,  Church,  13th,  Fillmore  to  Broad- 
way     16 

Bryant  and  16th  via  16th,  Church,  13th,  Fillmore  to 

Broadway  10 

Fillmore-  Richland  and  Mission  via  Mission,  Valencia,  Gough, 

Valencia.  McAllister,  Fillmore,  Sacramento,  Presidio  to  CaH- 

fornia   8 

Mission-  Utah  and  24th  via  24th,  Howard,  22nd,  Mission,  16th, 

Richmond.  Church,  13th,  Fillmore,  Oak  and  Page,  Divisadero, 

Sacramento,  6th  Avenue,  Clement  to  13th  Avenue. .   10 

San  Bruno.  5th  and   Market  via  5th,  Bryant,  Army,   San   Bruno 

Road  to  Dwight 9j^ 

Guerrero.  Ferry    via    Mission,    14th,    Guerrero,    30th,    Chenery, 

Diamond,  San  Jose  Avenue  to  Daly  City 8 

Bosworth.  Mission  to  Berkshire  via  Bosworth 4 

Bryant.  2nd  and  Market  via  2nd,  Bryant  and  Brannan,  26th, 

Mission,  Cortland  to  Banks   10 

2nd  and  Market  via  2nd,  Bryant  and  Brannan,  26th  to 

Mission     3 

Divisadero  Sacramento  to  Jackson  via  Divisadero 7j^ 

Extension. 

Eighteenth.  3rd  and  Harrison  via  Harrison,  14th,  Guerrero,  18th, 

Ashbury,  Frederick,  Clayton,  Waller  to  Stanyan. . .     6 
8th  and  Harrison  via  Harrison,  14th,  Guerrero,  18th, 

Ashbury,  Frederick,  Clayton,  Waller  to  Stanyan...     6 
Eighth  and  8th  and  Market  via  8th,  Bryant,  16th,  Kansas,   17th, 

Eighteenth.  Connecticut,  18th,  Kentucky  to  23rd  Avenue  So 10 

Folsom.  Ferry  via  Folsom,  Precita  and  Army 13 

Harrison.  Ferry  via  East,  Folsom,   Steuart,  Harrison,  Stanley, 

Bryant,  2nd,  Brannan,  3rd,  Townsend  to  Depot..   11 

Howard.  Ferry  via  Howard,  24th  to  Utah 12 


Table  26 
(Cont'd) 
and  27 


( 


TABLE  26— RECOMMENDED  RUSH-HOUR  ROUTING 
AND  SERVICE  DISTRIBUTION 

CONTINUED 
Route  Routing — Outbound  Trips 

Tenth  and  Kearny- Washington-Montgomery  loop  via  Post,  Leav- 

Montgomery.  enworth,  McAllister,  Larkin,  Fulton,  Polk,  10th  to 

Bryant 10 

Fillmore  Hill.  Broadway  to  Bay  via  Fillmore   12 

San  Mateo.  5th-Mission-6th   loop  via  Howard,  26th,   Mission  to 

San  ,  Mateo    (limited   stop) 4 

Sixth  and  Brannan  via  6th,  Taylor,  Post,  Kearny,  Bush,  Sansome 

Sansome.  to  Chestnut 9 

Visitacion.               Railroad  Avenue  to  Mission  Street  via  private  right- 
of-way  4 

Castro.  18th  to  26th  via  Castro 17 

Powell  and  Powell  and  Market  via  Powell,  Jackson  and  Washing- 
Jackson,  ton  to  Steiner 18 

Powell   and  Powell  and  Market  via  Powell,  Jackson,  Washington, 

Mason.  Mason,  Columbus,  Taylor  to  Bay 14 

Sacramento.  Ferry  via  Sacramento  and  Clay  to  Fillmore 15 

Post-Polk-  Kearny-Washington-Montgomery  loop  via  Post,  Polk, 

Pacific.  Pacific  to  Broderick 12 

Mission-16th.  Bryant  via  16th,  Mission  to  Richland  (rush  hour  only)  10 


TABLE  27— ADDITIONAL  OUTBOUND  RUSH  HOUR 
TRIPS  REQUIRED  FROM  BUSINESS  DISTRICTS.* 

OPERATED  TO  PRESENT  TERMINI. 

Additional       Period  Round 

Trips                of                         Trip  Car 

Route.                                                         Required.    Underservice.t       Miles.  Miles. 

McAllister   5           1-2-3-4             9.558  47.790 

Haight    7            1-2-3-4             7.882  55.174 

Market  5           1-2-3                6.676  33.380 

Valencia   9            1-2-3-4             9.112  82.008 

Ninth  and  Polk 1              2-3                5.002  5.002 

Sutter  and  California 2               2-4            10.750  21.500 

Sutter  and  Clement 2                  3-4            10980  21.960 

Turk    and    Eddyt 

Ellis  and  Ocean 2                 3-4             9.990  19.980 

Kentucky  2                  3               13.150  26.300 

Bryant    2              2-3                7.624  15.248 

Folsom  1              2                   8.024  8.024 

Glen  Park  3            1-2-    4            13.000  39.000 

Twenty-fourth  and  Mission 7           1-2-3-4            9.600  67.200 

Ingleside    3            1-2                  20.506  61.518 

Cemeteries 6           1-2-3-4           21.494  128.964 

Mission  3            1-2-3               13.434  40.302 

Guerrero 2               2-4            16.014  32.028 

San   Mateo 1               2                  13.434  13.434 

San    Bruno 2               2-3               10.620  21.240 

65  740.052 

•Based  upon  comfortable  capacity  determined   in  Chapter  S,   reduced    10%   on  prepay- 
ment   cars    to    compensate    for    non-uniform    loadini?. 

tNumbers  refer  to  the  four  15-minute  periods  of  the  rush  hour. 

JExtra  car  now  operated  in  first  15-minute  period  should  be  changed  to  second  period. 


Table  28 


I 


TABLE   28.     AVERAGE  LENGTH  OF  RIDE 

Average 

Passenger 

No.         Route  Ride 

Electric  Miles 

12         Ingleside 3 .38 

14  Cemeteries '.....'. 3 .  14 

42         San  Mateo 2.81 

to        Glen  Park 2 .80 

1  Sutter  and  California 2 .  45 

18  Mission 2.38 

A        Geary  (Municipal)  to  10th  Ave.  and  Fulton 2  .  37 

25  San  Bruno 2 .  35 

26  Guerrero 2 .  30 

11         24th  and  Mission 2.27 

9        Valencia 2 .22 

31         8th  and  18th 2  .  10 

4  Turk  and  Eddy 2  .09 

2  .   Sutter  and  Clement 2 .03 

16         Kentucky 2 .02 

23  Fillmore- Valencia *. 2 .  00 

34  Bryant 2  .  00 

35  Howard 1  99 

5  McAllister 1  98 

5  Market 1 .90 

6  Hayes 1-86 

24  Mission-Richmond 1-85 

33         Folsom 1 .  79 

8         Haight 1-77 

21  Hayes-Ellis , 1   70 

20         Ellis  and  Ocean 1  64 

22  Fillmore  and  16th 1-55 

3  Sutter  and  Jackson • 1 .  50 

30         18th 1-39 

45         Union 1   39 

37         10th  and  Montgomery ^ .  10 

19  9th  and  Polk 0 .  95 

15  Kearny  and  Beach 0 .  85 

43         6th  and  Sansome 0  62 

Weighted  Average  for  All  Electric  Cars 1-87 


Cable 

49 
54 

51 
50 
53 
47 
48 


Geary  (Cable) 2 .  10 

Sacramento 1.23 

Powell  and  Jackson 0 .  96 

O'Farrell  and  Jones 0 .  82 

Powell  and  Mason 0  69 

California 0.69 

Castro 0 .  54 

Weighted  Average  for  All  Cable  Cars 112 

Average  ride  for  entire  city,   1.68  miles. 
Average  haul  for  S-cent  fare.  2.4  miles. 


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Tables 
30  and  31 


111 

III 


TABLE  30.— COMPARATIVE  DATA— HARBOR  VIEW  TUNNELS 


TUNNEL 


Between 


South  Portal 
Length        Grade  (or  West) 

Feet  %        Approach  Gross 

Grade  %  Headroom 

Feet 


North  Portal 
(or  East) 
Approach  Gross 

Grade  %  Headroom 

Feet 


Maximum    gradient    encountered    on 
traffic  route,  and  location 


Divisadero,  82'6"  wide Sacramento  and  Filbert 2950 

..;...  Sacramento  and  Greenwich ....     3294 


II 
II 

41 

4( 


l< 


"     Sacramento  and  Lombard . 

"     C^ifomia  and  Lombard. . 

"     Pine  and  Lombard 


3638 
3972 
4332 


2.37  6.8  36  at  Clay 

3. 95  6.8  40  at  Clay 

4.77  6.8  41  at  Clay 

3 .  83  5.5  28  at  Sacramento 

3.11  2.2  ♦24  at  California 


21.8  42  at  Union 

10.9  47  at  Filbert 

4.0  27  at  Greenwich 

4.0  27  at  Greenwich 

4.0  2  7  at  Greenwich 


'5.3  on  Broderick,  (California  to  Sacramento. 
•  6 . 8  on  Divisadero,  California  to  Sacramento. 

6.8  on  Filbert,  Divisadero  to  Scott. 
'5.3  on  Broderick,  C^ifomia  to  Sacramento. 

6.8  on  Divisadero,  CaliioTma.  to  Sacramento. 

Same  as  above. 

3.6  on  Broderick,  Pine  to  (California. 

2 .  85  on  Divisadero  in  tunnel. 


Pierce,  68'9' 
i<  II 


wide (California  and  Green. . 

"    Pine  and  Green 

"    (California  and  Union . 

"    Pine  and  Union 

"    (California  and  Vallejo. 


2597  2.88  6.9          35  at  Sacramento  5.3 

2957  1.55  0.7  27  at  (California  5.3 

2941  3.52  6.9  36  at  Sacramento  6.2 

3301  2.44  0.7  *26  at  (California  6.2 

2253  1.6  6.9  33  at  Sacramento  10.3 


27  at  Vallejo 
27  at  Vallejo 
27  at  Green 
27  at  Green 
46  at  Broadway 


6.2  on  Pierce,  Union  to  Filbert. 

Same  as  above. 

Same  as  above  and  on  Steiner,  Pine  to  CaUfomia. 

6.2  on  Pierce,  Union  to  Filbert. 

11.1  on  Steiner,  Green  to  Union. 


Steiner,   68'9"  wide Pine  and  Union 

"  **         "    C^ifomia  and  Union 


3301        3.01         1.8  27  at  California  4.2 

2941        4.08        6.2  29  at  Sacramento       4.2 


27  at  Green 
27  at  Green 


4.2  on  Steiner,  Union  to  Filbert. 
4.4  on  Fillmore,  Bush  to  Pine. 


Fillmore,  68 '9"   wide Sutter  and  Union 

"    Sutter  and  Filbert. . . 

"  ♦•         ••    Bush  and  Union 

"    Pine  and  Union 

"  "  "    California  and  Union . 

"    Bush  and  Filbert 


3988  1.65  2.2  27  at  Bush  8.4 

4332  2.33  2.2  28  at  Bush  3.6 

3644  2.21  8.0  '23  at  Pine  8.4 

3301  2.62  6.4  27  at  (California  8.4 

2941  3 .  54  1 .  45  30  at  Sacramento  8 . 4 

3988  3.03  8.0  •23  at  Pine  3.6 


36  at  Green 
27  at  Green 
34  at  Green 
33  at  Green 
30  at  Green 
27  at  Union 


4.2  on  Steiner,  Union  to  Filbert. 

2.5  on  Steiner,  Filbert  to  Greenwich. 

4.2  on  Steiner,  Union  to  Filbert. 

6.4  on  PiUmore  in  tunnel,  Pine  to  (California. 

4.4  on  Fillmore,  Bu^  to  Pine. 

3.4  on  Bush,  Steiner  to  Fillmore. 


Broadway,  82'6"  wide Mason  and  Larkin 2337^    0.99        3.6 


40 


5.3 


84 


6.3  on  Broadway,  Powell  to  Stockton. 


NOTES — These  tunnel  grades  are  based  upor  a  minimum  gross  headroom  of  27  ft.  (except  as  noted  thus  •),  tunnel  floor  to  street,  and  include  dip  at  entrance. 
Traffic  routes  given  without  regrades. 


TABLE  31.— COMPARATIVE  DATA— TWIN  PEAKS  TUNNELS 

MINIMUM  GROSS  HEADRCX)M  20  FEET  (STREET  GRADE  TO  SUB-GRADE) 


C(  NOT  USED) 


MAIN  GRADE 


Index 
Levels 


Designation  of 
Tunnel  Plans 


Market  St. 


Between 


Total 
Length 
Feet 


Elev.  of     Elev.  of 
Out.  End    In.  End 


Diff. 
Feet 


Length 
Feet 


Grade 


Main  Grade  Btweeen 


A-(^ 

A-B 

A-Bo 

A-B 

A-Bo 


High-Level . Not  Extended       Dewey  Bvd.  &  C^astro 


8,500 


395 


118 


277 


8.500        3.26 


High-Level,  3A Ext.  Straight 


n 

it 


Curved 


Dewey  Bvd.  &  Eureka 
"     "  Castro 
"     "    Ord. 
"     "    Castro 


7,300 
8,500 
6,900 
8,500 


395 
395 
395 
395 


152 
117 
182 
118 


243 
278 
213 

277 


7,300 
7,700 
6,900 
8,500 


3.33 
3.61 
3.09 
3.26 


Dewey  Bvd.  &  (Castro. 

"  **  Eureka. 

"  "  Diamond. 

"  "  Ord. 

"  "  Castro. 


(4 
<l 
41 
44 


Ao-B 
Ao-Bo 
Ao-B 
Ao-Bo 


Low-Level  with  7th  Ave.  Ck)nnection,  5 Not   Extended 

"      "  "  Ext.  Straight 

<<  <t  41  (<  H  It  CA  44  '• 

..'.'.'.    "    Curved 
5B....    " 


44 


(4 
44 


44 


<4 

44 


44 


T  St.  &  Castro 
"    "    •'    Eureka 
"    "    "    Castro 

Ord. 

"  "  "  Castro 


11,740 
10,540 
11,740 
10,140 
11,740 


365 
365 
365 
365 
365 


118 
152 
117 
182 
118 


247 
213 
248 
183 
247 


8,500 
7,300 
7,700 
6,900 
8,500 


2.91 
2.92 
3.22 
2.65 
2.91 


41 
44 


44 
44 


d^tro. 

Eureka. 

Diamond. 

Ord. 

C^astro. 


D-Co       Low-Level  without  7th  Ave.  Connection,  2  . .  Not  Extended 


44 


44         44 


C^tro 


11.700 


335 


124 


211 


10,900 


1.94        T  St.  &    Diamond. 


4A..Ext.  Straight 

2...    " 

"     Curved 


44 


44  <4  44 

44  <4  44 

44  (4  44 

44  44  44 


Eureka 
C^tro 
Ord. 
(Dastro 


10,500 
11,700 
10,100 
11,700 


335 
335 
335 
335 


152 
117 
182 
162 


183 
218 
153 
173 


10,500 
10,900 
10,100 
10,100 


1.74 
2.0 
1.52 
1.71 


44  44 

44  44 

44  <4 


D-Co 


44  44         44 


(Castro 


11,700 


335 


118 


217         11,700        1.86 


44  44 


Eureka. 
Diamond. 
Ord. 
Ord. 


Ostro. 


Plan  No.  3.  A-C.  and  Plan  No.  4.  Ar-C.  impracticable  by  reason  of  dip  in  Eureka  Valley. 


Table  32 


TABLE   32— RECOMMENDED   CHANGES   IN    SIDEWALK 

WIDTHS 

Additional  to  those  listed  in  ordinance  now  in  force. 


Street 

Post 

Geary 

O'Farrell   

Powell 

Kearny  

Kearny  

Taylor 

Jones  

Leavenworth 

Montgomery 

Montgomery 

Second  

Duboce  Ave 

Howard 

Market  St.  Extension 
California 


IMMEDIATE    REDUCTIONS 

Street  Sidewalk 
Width                  From                                                 Present 

68'9"  Stockton  to  Leavenworth 15' 

68'9"  Powell  to  Presidio  Ave 15' 

68'9"  Mason  to  Jones  (cable  line)  ...  15' 

68'0"  Geary  to  Sutter  (cable  line)..  15' 

75'0"  Market  to  California 18' 

75'0"  California  to  Broadway 18' 

68'9"  Market  to  Post 15' 

68'9"  Market  to  Geary  (cable  line)  . .  15' 

68'9"  Market  to  Ellis 15' 

64'9"  Market  to  California 15' 

64'9"  California  to  Columbus  Ave...  15' 

82'6"  Market  to  Mission 19' 

80'0"  Church  to  Fillmore 19' 

82'6"  Ferry  to  Fifth  Street 15' 

90'0"  Castro  to  Eureka 

85'0"  Divisadero  to  Maple 19'* 


Street 

Street  Width 

Columbus  Ave 80'0" 

Guerrero 82'6" 

Stockton 66'9" 

Stockton 66'9" 

Broadway 82'6" 

Fillmore 68'9" 

Fillmore    (b) 68'9" 

Fillmore 68'9" 

Fillmore   (b) 68'9" 


LATER    REDUCTIONS 

Sidewalk 
From  Present 

Washington  to  Beach 19' 

Fourteenth  St.  to  Twentieth...  19' 

Market  to  Sutter 15' 

Sacramento  to  Union 15' 

Embarcadero  to  Mason 19' 

McAlHster  to  Sutter 15' 

Geary  to  Sutter 15' 

Sutter  to  Broadway 15' 

Union  to  Bay 15' 


Width 
Proposed 

11' 

11' 

12' 

11 '6" 

14' 

12'6" 

11' 

12' 

11' 

U'x 

11' 

15' 

15' 

13'a 

15' 

15' 


Width 
Proposed 

15' 

15' 

10'6" 

IC 

15' 

11' 

9' 
11' 

9' 


NOTE — Many    changes    authorized    by   ordinance    have    not    yet    been    carried    out    of 
which  Polk  Street  is  a  conspicuous  example. 

*  One  block,   Presidio  to  Walnut   Street,   15'. 

X  SuflFicient   for   one   way   operation,    further   reduction   desirable. 

a  Sufficient   clearance   for   two   trucks   abreast. 

b  Arcading  of  store   fronts  is  essential   at  terminal   portals. 


Table  33 


TABLE  33.     COMPARATIVE  GENERAL  BALANCE  SHEET-MARCH  20,  1902  AND  JUNE  30,  1912. 

UNITED   RAILROADS  OF  SAN  FRANCISCO. 


ASSETS 


June  30,  1912 


RAILROADS.  PROPERTIES  AND  FRANCHISES   .^ ^Ii'ulsi  96 

ADDITIONS  AND  BETTERMENTS  TO  PROPERTY 11.131.^81. vo 

MARKET  STREET  RAILWAY  COMPANY 

Five  per  cent  Bonds  in  Treasury  .  ••••••••• 4  109.780. 46 

MORTGAGE  SINKING  FUNDS  INVESTED     ....^. 4.iw./«u 

FUND  FOR  IMPROVEMENTS  AND  BETTERMENTS 

SINKING  FUND  FOUR  PER  CENT  GOLD  BONDS       ,  75  000  00 

Reserved  for  future  betterments,  improvements  and  acquisitions 247  651  62 

EQUITY  IN  EQUIPMENT  UNDER  TRUST • 300'00000 

EQUIPMENT  UNDER  TRUST  (Note  Holders'  Equity-see  contra) 300.000. uu 

INVESTMENTS  IN  BONDS  AND  STOCKS  153.299.17 

Bonds '.'.'.'.'.'.'.'.  ..\...  ..  3,977  .40 

FUN^D  "for  'ACbuiREMEiNf  OF  OUTSTANDING  ST OCKS .' ! ! ! ! ! ! ! ! .' ! ! ! !  i ! !  ^  "  !  ^ ' '  ^  •  ■  •  •  16.954. 15 

WORKING  ASSETS  643.266.24 

Material  and  Supplies 18,224. 27 

Insurance  paid  in  advance 50.00 

Interest  paid  in  advance 

CURRENT  ASSETS       ,  .     „     ^  509,728.90 

Cash  on  Deposit  and  in  Hand 197.148 .  77 

Bills  Receivable 83.003 .  75 

Accounts  Receivable 

Tirey  L.  Ford,  General  Counsel 

Change  and  Bail  Fund .  .  • 

Subscriptions  to  Common  Capital  Stock  .  .  •  •  • 5  593  02 

UNADJUSTED  ACCOUNTS  (Sundry  Items  in  Suspense) ; 

$88,637,887.44 

Total 

LIABILITIES 

•   e  lyv)  000  00 

CAPITAL  STOCK,  FIRST  PREFERRED ^oioooioooioo 

CAPITAL  STOCK,  PREFERRED ;;;;  17.948,600.00 

CAPITAL  STOCK,  COMMON 25,409,000.00 

SINKING  FUND  4%  GOLD  BONDS 14591.000. 00 

UNDERLYING  BONDS  ASSUMED 30O.OOO.OO 

EQUIPMENT  TRUST  NOTES. 1.000,000.00 

5%  PROMISSORY  GOLD  NOTES 1.229.000.00 

CONSTITUE^NT^a?MPAN^^^^  LIABILITY   TO  "  bUTSTANblNG-  STOCK  '  OF   MARKET 

STREET.  SUTTER  AND  SUTRO  COMPANIES lo.va^.io 

CURRENT  LIABILITIES  536.993.94 

Bills  Payable 666,847 .  48 

Accounts  Payable 150,200.94 

Pav  Rolls 4.106.65 

Unclaimed  Wages :  Vt'    •,■.••  j 27.975.00 

Interest  on  Bonds.  Due  and  Unclaimed 108.000.00 

Interest  on  Bonds.  July  1st 

Employees'  Hospital  Fund 

ACCRUED  NOT  DUE  427,023.31 

Interest  on  Bonds 750.00 

Interest  on  Equipment  Notes 20,833 .  34 

Interest  on  Promissory  Gold  Notes 30.725 .00 

Interest  on  Income  Notes 3,219 .96 

Interest  on  Bills  Payable 166.992 .54 

Taxes .'.■.'.'.'.'.'.*.'.'.'.".'.'.'.".'." '  •  152.495.58 

DEPOSITS  RE^CEIVeD  AND  UNREDEEMEI)  TICKETS  ^qqqq  qO 

Advertising  Contract  Deposit 9.772  .  75 

Employees'  Deposits "  5.834. 24 

Unredeemed  Tickets 

RESERVES                              ^      ^  157.763.88 

For  Mortgage  Sinking  Funds. '.'.'.'.'.. 

For  Insurance 

For  Depreciation  and  Renewal* "  623.798.68 

Profit  and  Loss  Surplus . 

$88,637,887.44 

Total 


March  20,  1902 

$71,748,043.27 


1,500,000.00 

653.642.50 

1.600,000.00 

5.409,000.00 


Increase 

$11,131,281.96 
3,456,137.96 


247,651.62 
300,000.00 

153,299. 1» 
3,977.40 


Decrease 

$606,215.54 

1,500.000.00 
1,600,000.00 
5,334,000.00 


401,856.85 

.J5*,yuz.  /w 

283,384.96 

359,881.28 

1,266.07 

16,958.20 

50.00 

476,254.53 

33,474.37 

12,750.00 

184,398.77 

22,378.97 

2,064.34 

150.00 

60.624.78 

2.064.34 
150.00 

900.00 

6.693.02 
$15,954,378.53 

900.00 

$82,111,741.49 

$9,428,232.58 

$5,000,000.00 

$20,000,000.00 
20,000,C00.00 

$2,051,400.00 

25.409.000.00 

14.591.000.00 

300,000.00 
1,000.000.00 
1.229.000.00 

401.856.85 

384.902.70 

50.000.00 

486,993.94 

155.185.65 

511,661.83 

71.495.27 

78.705.67 

1.209.80 
40,935.00 

2.896.85 
108,000.00 

12.960.00 

2.982.82 

2.982.82 

139.445.57 

287.577.74 

750.00 

20.833.34 

30.725.00 

131.95 

3.088.01 

52,486.58 

114.505.96 

48,290.32 

104.205.26 
50,000.00 

42.342.00 

32.569.25 

1.213.85 

4.620.39 

671.963.62 

148.076.88 

12.281.94 

514.199.74 

148.076.88 

12.281.94 

271,843.39 

351.955.29 

$82,111,741.49 


$9,685,519.28         $3,159,373.33 


Authority — United  Railroads  Balance  Sheets. 


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TABLE  34. 
AUTHORIZED    AND    OUTSTANDING     SECURITIES 

UNITED  RAILROADS  (AS  OF  JUNE  30.  1912) 

SS.000.000.00 


FIRST  PREFERRED  STOCK 
Authorized 


Outstanding. 

PREFERRED  STOCK 
Authorized 


Outstanding 

COMMON  STOCK 

Authorized 

Reduced  (1908). 
In  Treasury 


e  1.200.000. 00 
851.400.00 


Unissued. 


TOTAL  STOCK  OUTSTANDING. 


$20,000,000.00 


$20,000,000.00 


2.051.400.00 


$5,000,000.0 


$20,000,000.00 


$17,948,600  00 
$42,948,600.00 


MORTGAGE  BONDS— U.  R.  R.  4  PER  CENT 

Authorized $35,275,000.00 

Reserve  for  Underlying  Securities $9,866,000.00 

In  Treasury  from  Issue  of  $5,409,000. 

for  Additions  and  Betterments..  75.000.00 


Unissued. 


Outstandinf? 

UNDERLYING  BONDS— Total  All  Sub- 
sidary  Companies 
Authorized $25.4.S0,000.00 


Outstanding. 


9.941.000.00 
$25,334,000  00 


14.591.000.00 


TOTAL  BONDS  OUTSTANDING 

GOLD  NOTES— 5  PER  CENT 

Authorized $1,000,000.00 


$39,925,000.00 


Outstanding 

INCOME  NOTES— 6  PER  CENT 
Authorized 


Outstanding 

EQUIPMENT  NOTES 
Authorized 


$1,229,000.00 


$400,000.00 


Outstanding 

TOTAL  OTHER  DEBT. 
TOTAL 


$1,000,000.00 


$1,229,000  00 


$300,000.00 


$2,529,000.00 
$85,402,600.00 


RECONCILIATION  WITH  CAPITAL  INVESTMENT  SCHEDULE 


Net  Capital  Investment 

Bonds  and  Sinking  Fund  Investment. 


$80,835,542.97 
4.267.057.03 


Equipment  Trust 

Authority — United  Railroads  Balance  Sheet. 


$85,102,600.00 
300.000.00 

$85,402,600.00 


TaUe  34 


Table  35 


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CR 


c 

3 

b 

> 

0) 

01 


0^ 


O 
10 


© 

© 

§ 

g 

0 

0 

10 

«o 

«*> 

« 

» 

CO 

O 

fe|3 

Cti  oj 

rj>0 


0^    CO 


CO 


K 

V 


E 

3 
c 
c 


U 

a 


oc 


3 


0^ 


CO 


o 
q 


•— > 

E 
o 

b 

E 

3 
C 
C 
c« 

a 


o 
10 


o 
■*. 

o 


00 


10 


PO 


»o 


o 

< 

WO 

^1 

co-o 


Ho 

WS 

< 


o 


CO 


u 

CO 

H 
CO    Z." 

H    W^ 

S  a,  o 
w  ^ 


On 


§0 


O 
»o 


«N 


10 


8 


o> 

CM 


« 


U 

<« 

1/5   O 

W  oi 
O  3  c3 

OS 
cu 


-o 
co" 

O 

z 

O 

o 
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c 
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c 

3 
O 
o 
u 

en 

•O 
(d 

2 
'5 

'S 


c 

3 
•< 


Tablet 
36  and 37 


TABLE  36— CAPITAL  INVESTMENT 

UNITED    RAILROADS    (AS  OF   JUNE    30,    1912) 

CAPITAL  STOCK 

First  Preferred %  5,000,000.00 

Preferred 20,000,000.00 

Common  (less  $851,400  in  Treasury).  17,948,600.00 

Total  Stock 

FUNDED  DEBT $40,000,000.00 

GOLD  NOTES,  5% 1,000,000.00 

INCOME  NOTES,  6% 1,229,000.00 

Total  Gross  Debt $42,229,000.00 

LESS 

BONDS  IN  TREASURY $75,000.00 

MORTGAGE  SINKING  FUND 

INVESTMENTS 4.109.780.46 

BOND  AND  STOCK  INVESTMENT  157,276.57 


$42,948,600.  OC 


$4,342,057.03 


NET  CAPITAL  INVESTMENT,  1912 

Investment  per  mile  track  owned.  . 

NET  CAPITAL  INVESTMENT,  1902 

Investment  per  mile  track  owned .  . 

Authority — United  Railroads  Balance  Sheets. 


$37,886,942.97 

$80,835,542.97 

320,800.00 

72.437,357.00 

308,500.00 


TABLE  37— SUMMARY  OF  BOND  DISCOUNTS  AND 

PREMIUMS 

UNITED  RAILROADS  OF  SAN  FRANCISCO 

U.  R.  R.  4  per  cent  issued  to  acquire  stock  of  underlining  companies,  1902. 

Bonds  issued $20,000,000.00 

Discount '^9^^. 

U.  R.  R.  4  per  cent  sold  for  "Betterments,  Improvements,  Acquisitions." 

Bonds  sold,  1906-1909 $5,334,000.00 

Discount 1,420,890.89 

Average  rate 26 . 64^ 

DETAIL  OF  DISCOUNTS 

1906 $236,888 .  88 

1907 476,807.17 

1908 329,954.90 

1909 377,239.94 


$1,420,890.89 

UNDERLYING  COMPANIES 

Market  Street  Railway  5  per  cent 

Bonds  Sold,  1906-1907 $1,500,000.00 

Premiums 100,941 .  23 

Average  Rate 6 .  729fc 

DETAIL  OF  PREMIUMS 

1906 $27,775.99 

1907  73,165.24 


^y 


$100,941.23 


Authority — Data  furnished  by  United  Railroads. 


Table  38 


■  H 


P 

o 

C/D 

O 

H 

< 

T 

00 

PQ 


74  O  «^ 

3      '-I'-ifs 


"5  ^  "> 


tOOOfO 


^00  <N 
^  On  ^ 


00 

e 


o 


e 


O>00r^ 

eootoo 

•M  aH  (N 


OOQOO 

r*Ooo 

»iOOO 

d"'Ot>.* 


<N  aH  ro 
r«r»O00 


a 

3 


E 
8 

Q 

M 

C 

■5 

e 
u 

^932  a 

S*'-'  «  >   M 


US 


2 

O 


I 

o 


^  VH  74 

tX  74  »«> 


OOOOO 
t^  ro  74 

74  <N 


00«»)74 

«nvp«s 


CS<O00 

74>or^ 

74  O^  (M 


if)tf)0 

74  00O 


CS^74 
©74  fS 

00  o« 


"*7-l#» 

do>'» 

00  00 


< 

o 
o 


•^     (ai 


c  ■•-» 

-•O  4>'t3 

OO  So  o 


DHH 


b 


^OON 

■*-4  0 

(SOCN 

O  74  74 
74  0>0 


4i<»o»^ 
OOxjiro 

■»*«74\0 

oo>o 
cRot 


^  fO  00 

tsOM 

074  t>. 

»OoCp* 


00  <o^ 

(^  («)74 

»^O00 
O«oto 

74  74f*r 

74*^00 


»M7^ 

^00^0 

74  4f  O 

740r* 
'^r^oo 


(VI  wo 

<^  4j*  00 

ON^oq«>^ 
'OOO'* 


•noocs 

000*00 

o«o 


25 

o 
o 


<u 


^«3  6   • 

Oqc  C     . 


I 


l^^74 

■"to*-* 
<0<*5P 

ooq^^_ 
r-ToTo" 

^  "3  00 

esO<s 


lOiOO 

74  Ot74 

fooq74 

P•^0^«^^ 

(0«*)0 

o  <^ 


8 


ooesQ 

00«O4j« 
»O00<N 
fS»^  O 


^t*.74 
74  t>i  Ot 

0»0f0 

i>»oqio 

t>.ooo 
r^  00 


»^PMOk 

»0«74 
t>.f0  74 

^"o*io 

O  74   »^ 

740r» 


0«OIO 

74  0>d 

74  ^  74 

qoqok 

<NXd 

0074 
74  too 


74»*>IO 
C4  00 

o'o 


S^Si 


si- 


Oom  e  : 

J   (O    4)   >    1) 

r^'O      >7-.^ 

,h  "S  ♦*  ••-' 

s  . 


o 

74 


5dd 

0C74OV 

O'*  - 

74  tS 


ddd 

'*74«q 

^  lO 


§  § 

8  8 

8  8 

o  c 

d  d 

lO  ID 


Table  39 


TABLE  39.— BETTERMENT  ACCOUNT  1902-1912 

UNITED  RAILROADS 

ADDITIONS  AND  BETTERMENTS  TO  PROPERTY 
(MINOR  CREDITS  DEDUCTED) 


<: 

o 
o 

>^ 
< 

•-!  c  <«  C 

HO.S55 
wc  Coo 


CO 


? 

cd 

(Hi 

•s 

c 


•o 

Wi 

o 
u 


•c 

o 

9 
< 


1902. 
1903. 
1904. 
1905. 
1906. 
1907. 
1908. 
1909. 
1910. 
1911. 
1912. 


1^1,125,516.13 

1,431,225.81 

522,335.75 

724,633.42 

2,823,615.81 

3,483,924.29 

833,809.93 

824,008.01 

196,322.86 

237,970.85 

71,473.59 


CREDITS 


North  Beach  Power  Station $420,000.00 

North  Beach  Power  Station  Loss.  .  503,569.63 

Turk  and  Fillmore  Sub-Station  Equipment    1 15,610 . 40 

Geneva  Sub-Station  Equipment 37,660.54 

Millbrae  Sub-Station  Equipment.  . .  18,833.63 

Sundries 47,880.29 


Net,  June  30,  1912,  including  bond  discounts. 


BOND  DISCOUNTS 

1906 $236,888.88 

1907 476,807.17 

1908 329,954.90 

1909 377,239.94 

Plus  Premium ! . . . . 

Total  Net 

Authority— Data  furnished  by  United  Railroads. 


$12,274,836.45 


1,143,554.49 
$11,131,281.99 


1,420,890.89 

;9,710,391.07 
100,941.23 

9,811,332.30 


Table  40 


TABLE  40.— DIVIDENDS 

UNITED  RAILROADS 

FIRST  PREFERRED 

Date  Paid  R»te  9fc  ^^'"^""^^ 

Tulv  15    1908        3.5  $175,000 

fcb    IS    1909 3.5  175.000 

Tulv  5'  1909"  ■;:::.  ..  3.5  175.000 

ivh    15    1910 3.5  175.000 

•?ji^;  5'  910 :::....  3.5  m.ooo 

Feb    IS    1911 3.5  175,000 

Myi5;i9n:;::::::: 3.5  175.000 

PREFERRED 

Dec      1902                1-2  240.000 

Pane'    1903 1-2  240.000 

te      IW 1-2  240.000 

i;!?e      904 1-5  300.000 

te'     904 :          1-5  300.000 

V^^-    lont 1.8  360.000 

J?"^'   \l^^l 2  5  400.000 

Dec-   \l^r,l 3  6  720.000 

Mar.    1906 ^-^  400  000 

Dec,   1906 2.0  w\J,^w 

COMMON 

Mar.    1906 ^-^  300,000 

TOTAL  DIVIDENDS 

Authority— Data  furnished  by  United  Railroads. 


Totals 


r 


$1,225,000 


3,200.000 

300,000 
$4,725,000 


I  I    ^ 


TaUe  41 


TABLE  41.— ANALYSIS  OF  INCOME  ACCOUNT  WITH  DISTRIBUTION  IN  PER  CENT  OF  INCOME— UNITED  RAILROADS 


Year  Ending  December  3Ut, 


1900 


1901 


1903 


1903 


Total  Receipts ;  •    •  a'  ' '  ■; ^'Hj'JH'^ 

Gross  Earnings  from  Operation 'iri'icirQ? 

Passenger  Receipts *'^5l'lio  S? 

Other  Income 26,669.82 

OPERATING  EXPENSES 

Total  Maintenance tfvsJ^o? 

Total  of  Way  and  Structtires J^'^r?o 

Track  and  Roadway  only l^'9Xe  o^ 

Total  Equipment 359,575.86 

Revenue  Equipment  only 

Transportation  Expenses     *'I2}'?S2|f 

Operation  of  Power  Plants Si'5?2  qt 

Operation  of  Cars }'n??'XI??i 

Platform  Expenses  (wages) i,u/o,uo^ . z* 

General  and  Miscellaneous  Expenses ^ao'5t^' ^ 

Injuries  and  Damages «<  oii    *^ 

Legal  Expenses 16.961.12 

Total  Operating  Expenses ^'Hi'y^  SI 

Taxes •  •  • »  7ao  arSa? 

Operating  Expenses  and  Taxes z,/oy,ow».oo 

Renewals  and  Depreciation 

Total  Operating  Accounts ?  oJ?  o?Jac 

Gross  Corporate  Income i.vw.yw.oi 

DEDUCTIONS  FROM  INCOME 

Miscellaneous  Deductions.  Interest  on  Floating  Debt  and  Rent- 

als  and  Leases 7j?'oS  S 

Interest  on  Bonded  Debt,  Notes,  etc /zj.zuu.ui; 

Net  Corporate  Income *'^19*^"^ 

Sinking  Funds    ■•-■•:•■' y   ::  j    - -^ ,  ttt'l^lk 

Surplus  or  Deficit  (Dividends  not  deducted) l.l20..>0».4O 


100.00 

99.43 

98.80 

0.57 


100.00 
25.96 
22.46 
74.04 


100.00 
23.66 
76.34 
63.25 

100.00 

16.62 

7.18 


% 
100.00 


10.30 
2.67 

7.63 


36.10 
8.53 

22.83 

5.01 
0.83 


51.41 

7.35 

58.76 

58.76 
41.24 


0.22 
15.34 

25.68 

1.78 

23.90 


$5,146,076.60 

5.118,663.18 

5,089.776.23 

27,413.42 


560,416.05 
142,652.03 
123,808.58 
417,764.02 


1,826,481.36 

424,989.05 

1,401.492.31 

1,172,706.62 

304.650.72 
82,899.71 
43,603.05 

2,691,548.13 

362,904.70 

3,054,452.83 

3,054,452.83 
2,091.623.77 


8.797.16 
723.200.00 

1.359.626.61 

84.000.00 

1.275.626.61 


% 

100.00 

99.47 

98.95 

0.53 


100.00 
25.47 
22.10 
74.53 


100.00 
23.28 
76.72 
64.20 

100.00 
27.22 
14.32 


% 
100.00 


10.89 
2.77 

8.13 


35.49 
8.36 

33.80 

5.93 
1.61 


53.30 

7.05 

59.35 

59.35 
40.65 


0.17 
14.05 

36.43 

1.63 

34.80 


$5,564,923. 
5.538,918 
5,489,622 
26.005 


77 
61 
15 
16 


647.966.89 
356.756.69 
187.292.96 
291.210.20 
149.820.24 

1.857.493.00 

413,590.88 

1,443,902.12 

1,245,347.17 

365.331.37 

136.448.83 

20,740.40 

2,870,791.26 

403,337.45 

3,274,128.71 

3,274,128.71 
2,290.795.06 


2.114.32 
1.324.049.88 

964.630.86 

95.710.01 

868.920.85 


100.00 

99.53 

98.70 

0.47 


100.00 
55.00 
28.90 
45.00 
23.12 

100.00 
22.27 
77.73 
67.05 

100.00 

37.32 

5.68 


loo" 


00 


11.65 
6.43 

5.33 


33.38 
7.43 

33.38 

6.56 
3.45 


51.59 
7.34 

58.83 

58.83 
41.17 


0.04 
33.79 

17.33 

1.73 

15.61 


$6,267,972.97 

6.243.218.97 

6.189.898.01 

24.754.00 


693.768.24 
354.153.45 
158.286.93 
339.614.79 
283,076.30 

2,089,700.56 

430,271.75 

1,659.428.81 

1,411,916.94 

470.847.79 

150.028.95 

29.620.10 

3,254.316.59 
409.200.00 

3.663.516.59 
144.818.47 

3.808.335.06 
2.459,637.91 


12,388.09 
1,524,050.10 

923,199.72 
123.999.67 
799,200.05 


100.00 

99.60 

98.75 

0.40 


100.00 
51.00 
32.66 
49.00 
40.80 

100.00 
20.60 
79.40 
67.50 

100.00 

31.86 

6.29 


1904 


1905 


loo" 


00 


11.06 
5  64 

5.43 


33.33 
6.86 

23.53 

7.51 
3.39 


51.90 
6.53 

58.43 
3.33 

60.75 
39.35 


0.30 
34.33 

14.73 

1.98 

13.75 


$6,683,300.59  100.00 

6,652,630.27  99.54 

6,591,842.85  98.60 

30.670.32  0.46 


827,060.97  100.00 

382,611.94  46.35 

171,738.34  20.76 

444,449.03  53.75 

360,325.11  43.58 

2,092,722.81  100.00 

396,188.73  18.93 

1,696,534.08  81.07 

1,418.886.49  67.75 

379.954.63  100.00 

132.710.28  34.90 

42.672.74  11.33 

3.299.738.41 

376.700.00 
3.676.438.41 

410.692.16(c) 

4.087.130.57 
2.596.170.02 


71.710.20(6) 
1.524.050.00 

1.000.409.82 
257.052.59 
743.357.23 


% 
100.00 


12.38 
5.73 

6.65 


31.30 
5.93 

31.34 

5.68 
1.99 


49.36 
5.64 

55.00 
6.14 

61.14 

38.86 


1.07 

33.83 

14.97 

3.85 

11.13 


$7,102,528.06 

7.066.891.94 

7.000.343.39 

35.636.12 


813.799.70 
473.058.99 
243.897.72 
340.740.71 
282.154.49 

2.029.676.75 

361.460.95 

1.668.215.80 

1.380.810.51 

385.464.61 

132.713.55 

62.398.98 

3.228.941.06 
388.879.91 

3.617.820.97 
353.344.60 

3.971.165.57 
3.131,362.49 


7.838.89 
1.524.050.00 

1.599.473.60 

265.337.84 

1.334.135.76 


% 

100.00 

99.50 

98.60 

0.50 


100.00 
58.13 
29.95 
41.87 
34.68 

100.00 
17.83 
83.18 
68.00 

100.00 
34.42 
16  18 


% 
100. < 


11.45 
6.M 

4.80 


38.57 
5.09 

19.45 

5.43 

1  87 


45.45 
5.48 

50  93 
4.98 

55.91 
44.09 


Oil 
31  4« 

32.53 

3  74 

18.78 


Year  Ending  December  31st,  1900  1907 

.  * -.     . ^ ■ •"> 

WPrPTPTS  %  %  %                % 

Total  Receipts $5,982,597.66  100.00       100.00  $4,765,119.51        100.00       100.00 

Gross  Earnings  from  Operation 5.955.786.32  99.55  4.745.116.44        99.58 

Passenger  Receipts 5.905.303.24  98.71  4.706.019.44         98.76 

oth^rfncome... 26.811.34  0.45  20.003.07           0.43 

°^^T^MSnf<^S^.^^ 655.035.18  100.00         10.95  1.068.817.66       100.00        33.43 

Total  of  Way  and  Structures 333.182.51  50.85           5.57  271.515.10        35.40           5.70 

Track  and  Roadway  only 233.349.12  35.65  175.669.42         16.44 

Total  Equipment 321.852.67  49.15           5.38  797.302.56         74.60         16.73 

Revenue  Equipment  only 266.267.62  40.65  680.142.63         63.60 

Transportation  Expenses 1.704.443.77  100.00         38.48  1.872.601.49(c)  100.00        39.30 

OWSion  of  Power  Plants 369.750.04  31.70           6.18  481.141.07                           10.10 

oSSation  of  Cars 1.334.693.73  78.30  1.392.152.92 

^^latform  Expenses  (wages) 1.069.877.78  63.35         17.88  1.010.857.13        54.00        31.31 

General  and  Miscellaneous  Expenses 359.748.28  100.00          6.01  ^98.180. 31       100.00        10.45 

Injuries  and  Damages 139.220.76  38.68           3.33  206.819.62         41.50          4.34 

L««al  Expenses 25.621.91  7.13  25.154.36           5.05 

Total  Operating  Expenses HiVlll'H  ^lii  ^'^H?^'^                         1  56 

Taxes            395.362.86  6.61  407.800.00                            «5s? 

oSSiiiig  Exi^iis«i  and  Taxes 3,114.590.09  53.05  3.847.399.46                          80.74 

Renewals  and  Depreciation 129,812 .59  3. 17 

Total  Operating  Accounts H11S3  S  5i  S  ^•5t?'??XiS?                           19  26 

Gross  Corporate  Income 2,738,194.98  45.78  917,720.05                         19.36 

DEDUCTIONS  FROM  INCOME  ,  ^  „     . 

Miscellaneous  Deductions,  Interest  on  Floating  Debt  and  Rent-  „,.   «,  *  .-  ,,« nai  an                            J  76 

als  and  Leases 3^'2^H  -*!  a1  *  Ui'Yii '^                          tAT? 

Interest  on  Bonded  Debt.  Notes,  etc 1,580,702.14  36.43  1.753,111.18                           30.78 

Net  Corporate  Income H^^'^H  l\  *S  S  ~  *  Sii  t??  S  "^iS 

Sinking  Funds 243.115.73  4.07  287.333.34                              6.0J 

Su^lul  or  Deficit  (Dividends  not  deducted) 877.145 . 98 14.66-1.301.822.07 -^7.31 

Authority — Yearly  records  of  Income  Accounts  of  the  United  Railroads  of  San  Francisco. 

(a)  (1904) Includes  amount  set  aside  to  cover  loss  in  sales  of  abandoned  power  house  machmery.  $161,353.42. 

(b)(l904) — Includes  expense  of  threatened  strike,  $62,345.65.  ,  ^      .,       j   ../-w        *•       ^  d^_^ 
(c)a907)— Total  Trans^ntatlon  Expenses  given  as  $1,872,601.49.  but  sum  of  items  "OperaUon  of  Cars"  and  "Operation  of  Power 
plants"  is  in  excess  oi  this  amount  by  $692.50. 


1908 


1909 


1910 


1911 


$6,908,061.61 

6,866.302 .  73 

6.807.948.37 

41.758.88 


1.017.042.30 
304.548.30 
197.512.54 
712.494.00 
611.484.55 

2.703.140.90 
1.076.872.42 
1.626,268.48 
1.288.078.64 

522..S67.02 

229.702.51 

33.912.37 

4.242.750.22 

347.920.00 

4.590.670.22 

4.590.670.22 
2,317,391.39 


220.718.20 
1.772.336.62 

324.336.57 

351.326.05 

—  26.989.48 


% 

100.00 

99.40 

98.55 

0.60 


100.00 
39.95 
19.43 
70.05 
60.15 

100.00 
39.85 
60.15 
47.65 

100.00 

43.95 

6.49 


% 
100.00 


14.73 
4.41 

10.33 


39.13 
15.59 

18.65 

7.57 
3.33 


61.43 

5.04 

66.46 

66.46 
33.54 


3.19 

35.65 

4.70 

5.08 

-0.38 


$7,522,867.90 

7.455.965.30 

7.405.691.66 

66,902.60 


1.041.902.93 
324.948.69 
203.265.82 
716.954.24 
635.262.50 

2.686.797.01 
1.048.361.92 
1.638.435.09 
1.324.299.59 

513,948.78 

224.764.73 

53,943.08 

4,242,648.72 
396,200.00 

4,638,848.72 
157.391.10 

4.796.239.82 
2,726.628.08 


115.627.99 
1.843.408.68 

767.591.41 
363.119.31 
404.472 .  10 


% 

100.00 

99.11 

98.44 

0.89 


100.00 
31.18 
19.52 
68.82 
61.00 

100.00 
39.00 
61.00 
49.30 

100.00 

43.75 

9.53 


% 
100.00 


13.85 
4.33 

9.53 


35.71 
13.93 

17.60 

6.83 
3.99 


56.39 
5.37 

61.66 
3.09 

63.75 
36.35 


1.54 
34.50 

10.31 

P4.83 

5.38 


% 

$7,740,659.91       100.00 

7,653,489.15         98.87 

7,605,489.15         98.35 

87,170.76  1.13 


978,144.20  100.00 

344,758.28  35.25 

282,656.18  38.90 

633,385.92  64.75 

545,812.87  55.80 

2,770,211.88  100.00 

1,051,509.90  37.95 

1,718,701.98  63.05 

1,358,984.95  49.05 

532,814.48  100.00 

238,323.22  44.73 

49,122.57  9.33 

4,281.170.56 

448,100.00 
4,729,270.56 

458,959.35(4) 

5,188,229.91 
2,552,430.00 


180,000.22 
1,862,410.00 

510,019.78 
367.069.78 
142,950.00 


% 
100.00 


12.63 
4.45 

8.18 


35.79 
13.59 

17.56 

6.88 
3.08 


55.30 
5.79 

61.09 
5.93 

67.03 
33.98 


3.33 
34.06 

6.59 
4.74 
1.85 


% 

$7,966,987.32        100.00 

7.886.136.08         98.98 

7.836,136.08         98.36 

80,851.24  1.03 


904,608.77  100.00 

368,612.75  40.75 

294,243.81  33.53 

535,996.02  59.25 

452.396.47  50.00 

2,798,315.68  100.00 

1,034.352.74  36.96 

1,763,962.94  63.00 

1,407.603.01  50.30 

600.026.53  100.00 

267.075.94  44.50 

76.075.66  13.68 

4.302.970.98 

404.000.00 
4.706.970.98 

473.168. 16(<0 

5.180.139.14 
2.786.848.18 


136.687.76 
1.958.525.00 

691.6.15.42 
371.722.72 
319.912.70 


% 
100.00 


11. 3« 
4.63 
3.70 
6.73 


35.13 
13.98 

17.67 

7  54 
3.3S 


54.03 
5  §7 

59.09 
5.94 

65.03 

34  97 


1.71 
24.58 

8.68 
4.67 
4.01 


(d)  (1910-1911) — Charged  directly  to  Profit  and  Loss  in  (Capital  Account,  not  against  Income  Account. 

NOTE — ^United  Railroads  began  operation  March  20.  1902.     Data  for  previous  years  comprise  railways  which  subsequently  became 

United  Railroads.  .        .  .    ,  .,,.,. 

This  income  account  and  distribution  as  shown  is  analyzed  on  a  strictly  operative  basis  by  eliminating  "interest  on  bond  and  sinking 
fund  investments"  from  other  income. 


TaUe  42 


TABLE  42.— DISTRIBUTION  OF  OPERATING  EXPENSES  BY  YEARS 

UNITED  RAILROADS 


B  ii 


Hi 


1     ' 


Year  Ending  December  iUt  190J 

MAINTENANCE  WAY  AND  STRUCTURES 

TOTAL  MAINTENANCE  TRACK  AND  ROADWAY $  158,286.93 

Superintendence 

Special  Work 

Roadway  and  Track  Labor 

Paving 

Cleaning  and  Sanding  Track 

Rails  and  Ties 6,800.73 

TOTAL  MAINTENANCE  OF  LINE 174,629.87 

Superintendence 

Poles  and  Fixt ures 28.845.61* 

Overhead  Trolley 

Cables 109.389.34 

TOTAL  MAINTENANCE  STRUCTURES  AND  FIXTURES.  21,236.65 

Superintendence 

Car  Houses 12,838.53 

Shops 

TOTAL  MAINTENANCE  WAY  AND  STRUCTURES 354.153.45 

MAINTENANCE  OP  EQUIPMENT 

TOTAL  MAINTENANCE  OP  MOTIVE  POWER 

EQUIPMENT 39,709.85 

Superintendence 

Cables,  Repairs,  Wages  of  Ropemen 

Power  Plant  Equipment 39,709.85 

TOTAL  MAINTENANCE  OF  REVENUE  EQUIPMENT. . . .  283,076.30 

Superintendence 

Bodies  and  Fenders 56.780.73 

Trucks 111,314. 12 

Painting 13,472.73 

Electrical  Equipment 63.818.96 

Cable  Equipment 29,622 .83 

MISCELLANEOUS  EQUIPMENT  EXPENSES 

Service  Cars 656.28 

Shop  Expeases 15,391 .60 

Shop  Machinery  and  Tools 

Horses  and  Vehicles 

TOTAL  MAINTENANCE  OF  EQUIPMENT 339,614.79 

CONDUCTING  TRANSPORTATION 

TOTAL  OPERATION  OF  POWER  PLANTS $430,271 .  75 

Superintendence 

Power  Plant  Employees 103,896. 46(o) 

Sub-Station  Employees 

Power  Purchased 59.857 .60 

Fuel  for  Power 243.825 .04 

TOTAL  OPERATION  OF  CARS 1.659.428.81 

Sui)erintendence 111.362.52(6) 

Wages  of  Conductors,  Motormen.  Gripmen 1,411,916.94 

Miscellaneous  Car  Service  Employees 

Our  House  Employees 

Car  House  Expenses 61.082 .96 

TOTAL  CONDUCTINQ  TRANSPORTATION 2,089.700. 56 

GENERAL  AND  MISCELLANEOUS  EXPENSES 

Salaries  and  Expenses  of  General  Officers 98,926. 36(c) 

Salaries  and  Expenses  of  General  Office  Clerks 

Law  Expense 29.602 .  10 

Injtmes  and  Damages 150.028.95 

Insurance 38.070.90 

Rents  of  Tracks  and  Terminals 

TOTAL  GENERAL  AND  MISCELLANEOUS  EXPENSES.. .  470.847.79 

RENEWALS 96,545.66 

TOTAL  EXPENSES  FOR  PERIOD 3,350.862. 25(<i) 

*Includf8  poles,  wires  and  circuits. 
•*This  item  is  transferred  to  "Motive  Power  Equipment.  "     Accounts  redistributed. 
(a)Include8  all  wages  under  "Operation  of  Power  Plants." 
({>)Include<i  superintendence,  dispatch  and  road  service. 

(c)  Includes  salaries  and  expenses  of  general  office  clerks. 

(d)  Totals  differ  from  Income  Account  by  amount  of  Renewals. 
Authority—Monthly  Balance  Sheets,  United  Railroads. 


1904 

$171,738.34 


1905 

$243,897.72 


3.147.13 
181,142.91 

24,    939.86* 

121,227.55 
29.730.69 

19,057.30 

382.611.94 


63.452,89 


63,452.89 
360,325.11 

82.469.85 
131.010.14 
40.451.30 
72.165.15 
27,513.41 

1,851.48 
17.998.95 


444,449.03 


9,839.14 
202,819.93 

30,846.07* 

132.579.17 
26.341.34 

21.080.03 

473.058.99 


38.804.55 


38.804.55 
282.154.49 

48.186.47 
104.341.40 
27,400.64 
70.043.51 
23.500.39 

2.749.74 
16.664.96 


340.740.71 


$396,188.73  $361,460.95 

11 1,919. 49(a)        106.161.41(a) 


1.975.69 
248.402.09 

1.696.534.08 
123.240.86(6) 

1.418,886.49 


67.501.00 
2.092.722.81 


225.330.94 
1,668,215.80 

121,206.01(6) 
1.380,810.51 


78,641.22 
2,029.676.75 


1906 
$233,349.12 


8.710.33 
84,458.20 

31,051.00* 

37,059.01 
15,375.19 

8,769.25 

333,182.51 


31396.65 


31,896.65 
266,267.62 

50,338.31 
87.487.97 

8.126.83 
110.660.51 

7.479.42 

5.851.01 
17.679.11 


321.852.67 

$369,750.04 

77.643.30(a) 

127.930.87 
144.994.40 

1.334,693.73 
99.617.26(6) 

1.069,877.78 


54,035.10 
1,704,443.77 


1907 

$175,669.42 


4,031.18 
79,911.81 

39,087.06* 

23,407.08 
15,933.47 

11,845.94 

271,515.10 


69,139.92 


69.139.92 
680.142.63 

139.069.75 
218.971.52 

4.849.98 
310.821.50 

4.857.28 

10.316.06 
36342.40 


797.302.56 

$481,141.07 

85.054. 33(a) 

220.081 .  17 
156,268.14 

1,392,152.92 
140,317.57(6) 

1.010.857.13 


77,170.59 
1,872.601.49 


1908 
$197,512.54 

54.571.64 

6.188.95 
90.232.41 

38,496.59* 

34,611.95 
16.803.35 

8.490.78 

304.548.30 

64.623.23 


64.623.23 
611.484.55 

97.181.34 
239,272.74 

5,607.01 
259.256.28 

8.008.51 

7.686.07 
28^354.54 


712,494.00 

$1,076,872.42 

85,059. 68(a) 

711.101.04 
255.211.88 

1.626,268.48 
128.392 .  14(6) 

1,288,078.64 


86.730.68 
2,703.140.90 


1909 

$203,265.82 

50,179.09 

5,340.56 
103,503.74 

44,952.89* 

41,514.75 
18,179.13 

9,617.42 

324.948.69 

30,619.62 


30.619.62 
635.262.50 

89.365.59 
245.558.71 

13,950.47 

275.271.16 

9.882.30 

13.949.65 
36,878.89 


716.954.24 

$1.048.361 .92 

63.663.87(a) 

849.969.31 
118.256.86 

1.638,435.09 
117.336.54(6) 

1,324,299.59 


91.072.85 
2,686.797.01 


,18 
,18 
.80 


IflO 

$282,656. 
11.988. 

3,670. 

103.802.87 

66.826.11 

36.657.03 

7.004.48 
39,720.54 

2,852.34 

3,494.56 

24,630.86 

** 

22,381.56 

853.43 

8,120.44 

4,826.67 

344,758.28 


42,879.31 

1,247.55 

37,582.99 

1,430.96 

545,812.87 

11,928.61 

91.508.72 

184.674.52 

35.122.38 

212.930.68 

9,647.96 

8,483.87 

25,622.15 

3.575.96 

6,944.51 

633,385.92 


$1,051,509.90 

1.412.95 

7,713.75 

21.613.65 

993.162.56 

20.082 .  78 

1,718,701.98 

109.708.29 

1,358.984.95 

16.887.50 

143,323.52 

8.368.39 

2.770.211.88 


102.118.89(c)  97.246.58(c)  96.359.87(c)         135.868.62(c)         127.534.72(c)         123.069.32(c) 


42,672.74 

132.710.28 

21.156.12 

379.954.63 
133.052.59 


62.398.98 

132,713.55 

20.407.95 

385,464.61 
141,337.84 


3,432,791. 00(<0     3,370.278. 90(d) 


25.621.91 

139.220.76 

25.718.00 

359,748.28 
2,719.227.23 


25.154.36 

206.819.62 

25,279.14 

498,180.31 
3.439,599.46 


33.912.37 

229.702.51 

23,400.00 

522.567.02 
4,242.750.22 


53.943.08 

224,764.73 

27,813.61 

513.948.78 
4.242.648.72 


64.948.38 
47.520.10 
49.122.57 

238,323.22 

22.004.16 

3,000.00 

532.814.48 


4.281.170.56 


1911 

$294,243.81 

12.158.68 

11.404.10 

107.606.39 

75.832.25 

38.018.79 

10.175.21 

56.192.15 

3.725.55 

8.827.69 

31,882.84 

18.176.79 

1.200.00 

8.412.08 

3.586.84 

368.612.75 


39.232.66 

1.140.40 

35.336.66 

1,172.36 

452396.47 

22.264.76 

81,077.45 

150.565.31 

35,871.20 

153,928.48 

8,689.27 

9.470.02 

22,062.24 

8,561.86 

4.253.12 

535,996.02 


$1,034,352.74 

2.174.63 

10375.25 

21330.85 

990,539.62 

6.397.46 

1.763,982.94 

113,914.71 

1.407.603.01 

12.630.52 

157.982.41 

3.196.49 

2.798,335.68 


73.284.75 
47,983.94 
76,075.66 

267.075.94 

21.750.00 

5.250.00 

600.026.53 


4302,970.98 


Tables 
43  and  44 


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Tables 
45  and  46 


i; 


L 


TABLE   45.— CLASSIFICATION   OF    TYPICAL  WORKING 

DAY  FOR  TRAINMEN— 1912 


UNITED  RAILROADS 


By  Half-Hourly  Periods  Showing  Number  of  Men  Per  Period. 


11.5 
11 

10.5 
10 

9.5 

9 

8.5 

8 

7.5 

7 

6.5 

6 

5.5 

5 

4.5 

4 

3.5 

3 

2.5 

2 

1.5 

1 


Working  Day 
(Hours) 

to  12  or  over 

11.5 

11 

10.5 

10 

9.5 


Number 

Per  Cent 

of  Men 

of  Total 

16 

1.06 

80 

5.3 

420 

27.8 

752 

49.8 

130 

8.6 

28 

1.85 

9.. 

8.5 

8.. 

7.5 

7.. 

6.5 

6.. 

5.5 

5.. 

4.5 

4.. 

3.5, 

3... 

2.5. 

2... 

1.5. 


4^ 

2 
4 


2 

2 

4 

4 

6 

8 
14 

4 
14 
10 

6) 


5.59 


work  less  than  9 
hours  per  day 


1510        100.00 
Average  working  hours  per  day  for  system 9  hrs.,  57 


mtn. 


Year 
1902 
1903  ) 
to  \ 
1906) 

1906 


1907 
1908 
1912 


TABLE  46.— WAGE  SCALE  OF  CARMEN 

UNITED  RAILROADS 

25  cents  per  hour 

1st  year—  25  cents  per  hour  and  30  cents  per  hour  for  overtime. 
2nd  year— 26>^  cents  per  hour  and  31)^^  cents  per  hour  for  overtime 
3rd  year  and  after— 273^  cents  per  hour  and  ii  cents  per  hour  for 

overtime, 
(latter  part)  J  1st  year— 31  cents  per  hour 

y  2nd  year — 32  cents  per  hour, 
(latter  part)  )  3rd  year  and  after— 33  cents  per  hour. 
25  cents  per  hour.     1  cent  advance  for  each  year  of  service  up  to  3Z 
cents  and  at  that  rate  thereafter. 


Note — No  minimum  wage  for  extra  men. 
Authority— Data  furnished  by  United  Railroads. 


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Table  50a 


TABLE  50a.— COMPARATIVE   RECORDS   REVENUE   CAR   MILES,   TOTAL   PASSENGERS,  AND  REVENUE   PASSENGERS,  BY   MONTHS, 

UNITED   RAILROADS 


U  •' 


REVENUE  CAR  MILES 

January 

February 

March 

April 

May 

June 

TOTAL  1ST  6  MOS 

July 

Atigtist 

September 

October 

November '. 

December     

TOTAL  2ND  6  MOS 

TOTAL  PASSENGERS 

January 

February 

March 

April 

May 

June 

TOTAL  1ST  6  MOS 

July 

August 

September 

October 

November 

December 

TOTAL  2ND  6  MOS 

REVENUE  PASSENGERS  (Indudinc  Pare  and  Panes) 

January 

February 

March 

April 

May 

June 
TAL  1ST  6  MOS 

July 

August 

September 

October 

November 

December 

TOTAL  2ND  6  MOS 


1902 

1.510.704 
1.358.009 
1.539.709 
1,136.439 
1,560.785 
1.532.957 
8.638,603 
1.584.490 
1.591.981 
1.528.788 
1.578.752 
1.532.440 
1.604.364 
9.420.815 


8.372.106(a) 

7.845.287 

9.425,524 

6.864.918 

9.407,067 

9.016,358 

50.931.260 
9.072.606 

10.567.257 
9.732.006 

10.107.382 
9.780.991 

10.299.316 

59.559.558 


1903 

1.608.442 
1,438.039 
1,633,174 
1.599.417 
1.661.232 
1.601.941 
9.587.245 
1.653.115 
1,680,561 
1.631.742 
1.686.529 
1.622.528 
1.686.705 
9.961.180 


9.460.386(a) 

8.902.145 

9.939.428 

10.340.796 

10.842.748 

9.693.736 

59.179.239 

9.941.778 

11.436.051 

10.813,184 

11.355.713 

10.685.136 

11.189.454 

65.421.316 


1904 

1.660.865 
1,549.333 
1,654.558 
1.632.138 
1.680.036 
1.629.492 
9.806.422 
1.660.846 
1.644.664 
1.622.392 
1.635,921 
1.597.477 
1.636.816 
9,798.116 


15.906.441 
17,074,421 
17.207.819 
15.609.391 
95.812.547 
15.884.767 
16.511.106 
18.243.222 
17.887,637 
17.004.265 
16.854.297 
102,385.294 


10.601.445 
9.739.910 
10,755.312 
11.454.631 
11.546.320 
10.491.702 
64.589.320 
10.697.483 
11.109.705 
12.401.294 
11.960.464 
11.415.427 
11.496.854 
69.081.227 


1905 

1.627.109 
1.480,354 
1.651,479 
1.613.604 
1.664,823 
1.633,818 
9.671.187 
1.677.315 
1,667,854 
1.621.587 
1,668.317 
1,601.186 
1,710,414 
9.946,673 


16.252.845 
15.551.201 
17.470.413 
17.686.526 
17.997.619 
16.868.958 

101.827.562 
17.202.419 
18,278.537 
18.419.539 
19.276,037 
18.049.744 
18.490,196 

109.716.772 


10.945.821 
10.417.827 
11.688.408 
11.850.073 
12.046.444 
11.269,565 
68,218.138 
11.516.522 
12.222.996 
12.338.048 
12,837.249 
12.159.253 
12.636.056 
73.710.124 


1906 

1.710.455 
1.558.211 
1.747,517 
969.819 
800.634 
1.119.207 
7,905,843 
1.3C7.246 
1.056,662 
1,052.270 
1.297.215 
1.279.788 
1.361.126 
7.354.307 


17.804.962 
16.745.807 
18.582,577 
11.036.936 
10.362.836 
14,396.103 
88.929,221 
16.244.481 
13,697,091 
13,409.654 
17.507,962 
17.249,236 
17.612.012 
95.720.436 


12.073.056 

11.347.774 

12.582,577 

7.497.573 

6.571.356 

9.007.628 

59,079.964 

10.213.304 

8.632.661 

8,503.368 

11.075.427 

11.025.251 

11.376.334 

60.826.345 


1907 

1.388.371 
1.226.104 
1,254.510 
1.363.922 

394.936 

511,610 
6.139,453 

786.976 
1,078.596 

955,246 
1.119.423 
1.238.025 
1.352,769 
6.531.035 


16.977.497 

16.152.372 

17.229.790 

18.684.838 

3,754.055 

4.834.262 

77.632.814 

7.839.760 

10.388,945 

11,892.506 

14,183,103 

14.873,313 

15.620.704 

74.798.331 


10.895.953 

10,328.264 

11.069.570 

11.952.427 

2.597.496 

3.073.331 

49.912.041 

4.770.680 

6,415.639 

7.442.593 

8,719.459 

9.086.394 

9.720.050 

46.154.815 


1908 

1.522.295 
1.499,096 
1.610,483 
1.645.201 
1.794.081 
1,680.374 
9,751,530 
1.747.741 
1.692.910 
1.593.927 
1.614.799 
1.516.795 
1.613.214 
9.779.386 


14.930.388 
14.104.207 
16.196.631 
16.208.077 
18.578.247 
15,981.586 
95.999,176 
16.320.406 
16.891.674 
16,762.784 
16,944.214 
16.208.933 
17,004,010 
100.132,021 


10.087,761 
9,997,937 
11,398.088 
11.414.762 
13,272.484 
11,057.737 
67.228,809 
11.285.421 
11.734.704 
11.690.876 
12.245.514 
11.542.034 
12.108,389 
70.606.938 


1909 

1.668.135 
1.512.843 
1.653.052 
1,630.260 
1.732.207 
1,691,571 
9.888.068 
1.767.550 
1.778.810 
1.722.148 
1.852.431 
1.724.234 
1.784.170 
10.629.343 


16.171.671 
15,649,460 
17.481.277 
17.729.349 
18.136.556 
17.003.561 

102.171.874 
17.600.365 
18.318.401 
17.902,670 
20.519,687 
17.707.194 
18.181.095 

110.229.412 


11.389.600 
10,942.520 
12.217.127 
12.448.637 
12.736.536 
11.960.345 
71.694.765 
12.380.814 
12.888.861 
12.625,483 
14.773.658 
12.503.378 
13.017.183 
78.189377 


1910 

1.813.783 
1,632,150 
1.813.562 
1,783.920 
1.844.525 
1.747.133 

10,635.073 
1.794,750 
1.757,824 
1,728,401 
1,769.348 
1,719,424 
1.805,486 

10,575.233 


17.775.800 
16,269.000 
18.513.315 
18.525.143 
18.845.147 
17.335.793 

107.290.198 
17.695.657 
18.456.872 
18.642.837 
19.299.414 
18.230.935 
19.279.148 

111.604.863 


12.631.246 
11.489,946 
13,046,106 
12,036,432 
13,166,577 
12,127,106 
75,496.413 
12,372.291 
12.885.467 
13.167.291 
13.474.212 
12.760,445 
13.673.492 
78.333.198 


1911 

1.813,218 
1.613.817 
1,800.249 
1.806,565 
1.905,065 
1,851,534 

10,790.448 
1.904,343 
1,893.136 
1.835.293 
1.903.818 
1.836.932 
1.913.459 

11.286.981 


18.170.901 
16.578.031 
18.916.395 
18,615.226 
19,206.272 
17,937,666 

109.424.491 
18.382.545 
19.356.607 
19,294.509 
20.166.209 
19.462,579 
19.874.020 

116.536.469 


12,854.399 
11.626,215 
13,252.026 
13.094,468 
13.434.797 
12.544.192 
76.806.097 
12.883,121 
13.562.093 
13.511.217 
14.064.850 
13.562.377 
14.055.504 
81.639.162 


!    ! 


NOTE— (a)"Revenue  Passengers"  for  the  years  1902  and  1903  do  not  include 
Authority — Monthly  records  of  United  Railroads. 


1913 

1.912.394 
1.802.392 


19.328.125 
18.732.540 


13.517.783 
13.054.407 


Tabl< 
50b  and 
51 


TABLE  50b.— GROWTH  OF  SINGLE  TRACK  MILEAGE 


UNITED  RAILROADS 


Year 

1901 
1902 
1903 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1911 
1912 


Leased 


13.93 
14.01 
14.85 
17.15 


Owned 

234.83 
249.35 
250.96 
258.35 
258.35 
258.35 
257.43 
249.78 
250.97 
251.92 
252.77 


Total 

234.83 
249 . 35 
250.96 
258.35 
258.35 
258.35 
257.43 
263.71 
264.98 
266.77 
269.92 


Operated 

228.95 
228.78 
245 . 74 
250.82 
256.82 
208.89 
215.29 
235.60 
245.70 
260.12 
262.87 
265.14 


Authority — United  Railroads  Records. 


TABLE  51.— COMPARATIVE  EARNINGS,  EXPENSES  AND 

CAR  MILEAGE— ELECTRIC  AND  CABLE  LINES 

UNITED  RAILROADS 

Passenger  Earnings  per             1908               1909  1910               1911 
Car  Mile  (Cents) 

Electric 35.22              36.45  35.92              35.42 

Cable 33.62              34.56  34.98              36.78 

Total 35.15              36.34  35.86             35.49 

Expenses  per  Car  Mile  (Cents) 

Electric 21.49              20.47  19.92              19.25 

Cable 27.10              24.49  24.85               23.70 

Total 21.72              20.68  20.19              19.49 

Car  Mileage 

Electric  18,712,782       19,394,922  20,047,618      20,903.604 

Cable            818,134        1,122,489  1,162,688        1,173,825 

Total 19,530,916      20,517,411  21,210,306      22,077,429 

Authority — United  Railroads  Records. 


% 
f 


TaUe  52 


TABLE  52.-.DERIVED  OPERATING  STATISTICS,  BY  UNITS 

UNITED  RAILROADS 


V    i 


UniU  1902  1903 

PER  REVENUE  CAR  MII^ 

Gross  Earnings  (cents) 30.68  31 .94 

Passenger"           '*       30.40  31.67 

Oi)erating  Expense,  less  taxca  and  deprtciaUon  (cents) 15.90  16.65 

Total  Ofwrating  Account,  including  taxes  and  depreciation  (cents) 18. 13  19.47 

Maintenance  Revenue  Equipment  (cents) 1 .  45 

Maintenance  Total  Equipment  (cents) 1.61                1 .  74 

Maintenance  Way  and  Structures  (cents) 1 .98                 1.81 

Total  Maintenance  (cents) 3.59                3.55 

Cost  of  Power  (cents) 2.29                2.20 

Platform  Expense  (cents) 6.90                7.23 

Revenue  Passengers  and  Free  Passes 6. 11*              6.38* 

Total  Passengers 

PER  MILE  SINGLE  TRACK  OPERATED 

Gross  Earnings  (dollars) 24.200  25,400 

Passenger    "             "       24,000  25,200 

Maintenance  Tractc  and  Roadway  (dollars) 817  641 

Revenue  Car  Miles 78,800  79,600 

Revenue  Passengers 482,000*  507,500* 

•     Total  Passengers 

Population 1,553  1,510 

PER  CAR  HOUR 

Gross  Earnings  (dollars) 

Passenger   "  "       

Operating  Expense,  less  taxes  and  tlepreciation  (dollars) 

Total  Operating  Accotmt,  incluaing  taxes  and  depreciation  (dollars) 

Platform  Expense  (dollars) 

Passengers  (total) 

PER  REVENUE  FARE  PASSENGER 

Gross  Earnings  (cents) 5.01*  5.01* 

Passenger  Earnings  (cents) 4.97*  4.97* 

Total  Operating  Account,  including  taxes  and  depreciation  (cents) 2.97*  3.05* 

PER  TOTAL  PASSENGER  CARRIED 

Gross  Earnings  (cents) 

Passenger  Earnings  (ccjts) 

Total  Operating  Account,  including  taxes  and  depreciation  (cents) 

PER  CAPITA 

Gross  Earnings  (dollars) 15.65**  16.86** 

Car  Miles 51 .00**  52.82** 

Track  Mileage  operated  per  1000  inhabitants 0.647**  0.655** 

MISCELLANEOUS  RATIOS 

Bank  Clearings  to  Gross  Earnings  (dollars) 248 .00            243 .50 

Transfer  to  Revenue  Passengers   

Postal  Receipts  to  Gross  Earnings  (dollars) 23 .40              23 .20 


1904 


1905 


1906 


1907 


1908 


1909 


1910 


1911 


34.10 

36.24 

39.02 

37.45 

35.17 

36.34 

36.07 

35.76 

33.80 

35.90 

38.70 

37.15 

33.48 

34.20 

35.85 

35.52 

16.92 

16.55 

17.82 

27.16 

21.73 

20.68 

20.19 

19.52 

20.95 

20.37 

21.27 

30.37 

23.51 

23.38 

24.46 

23.49 

1.85 

1.45 

1.74 

5.37 

3.13 

3.10 

2.57 

2.05 

2.28 

1.75 

2.11 

6.29 

3.64 

3.49 

2.98 

2.43 

1.96 

2.43 

2.18 

2.14 

1.56 

1.58 

1.62 

1.67 

4.24 

4.17 

4.29 

8.44 

5.21 

5.08 

4.61 

4.10 

2.03 

1.85 

2.42 

3.80 

5.51 

5.11 

4.96 

4.45 

7.28 

7.08 

7.02 

7.98 

6.60 

6.46 

6.41 

6.38 

6.85 

7.28 

7.86 

7.58 

7.06 

7.30 

7.25 

7.13 

10.16 

10.83 

12.10 

12.03 

10.05 

10.36 

10.32 

10.15 

26.520 

27,550 

28,510 

22,040 

29.160 

30.350 

29.410 

30.000 

26,290 

27.280 

28,290 

21,860 

27.760 

28.600 

29.240 

29.820 

685 

950 

1,118 

816 

839 

828 

1.087 

1,120 

77,800 

75,950 

73,100 

58.900 

82.900 

83,600 

81.600 

84,000 

529.000 

548.500 

568,000 

439,500 

582.000 

606.500 

588.000 

591.800 

791,000 

824,000 

884,000 

708,000 

832.590 

865.000 

841.700 

851.000 

1.595 

1,664 

1.655 

1,515 

1.650 

1,600 

1.695 

2.75 

2.99 

2.56 

2.78 

2.95 

2.99 

3.01 

2.73 

2.96 

2.54 

2.65 

2.78 

2.97 

2.99 

1.26 

1.37 

1.86 

1.72 

1.68 

1.67 

1.64 

1.55 

1.63 

2.08 

1.86 

1.90 

1.85 

1.80 

0.54 

0.54 

0.55 

0.52 

0.52 

0.53 

0.54 

82.5 

84.0 

86.5 

5.01 

5.02 

5.02 

5.02 

5.01 

5.00 

5.00 

5.00 

4.97 

4.97 

4.98 

4.98 

4.97 

4.97 

4.97 

4.97 

3.08 

2.82 

2.74 

4.07 

3.35 

3.22 

3.09 

3.03 

3.36 

3.34 

3.25 

3.12 

3.52 

3.51 

3.50 

3.49 

3.25 

3.31 

3.20 

3.09 

3.47 

3.49 

3.48 

3.47 

2.06 

1.88 

1.76 

2.53 

2.35 

2.26 

2.16 

2.11 

16.62** 

16.55** 

13.33** 

19.23** 

18.40** 

18.40** 

17.72** 

48.75** 

45.65»* 

35.60** 

54.70** 

50.70** 

51.00** 

49.60** 

0.627** 

0.602** 

0.605** 

0.660** 

0.607** 

0.625** 

0.591** 

230.80 

259.50 

335.80 

449.80 

255.80 

265.60 

303.80 

308.30 

48.30 

49.10 

54.00 

58.70 

42.30 

41.70 

42.30 

42.60 

23.65 

25.10 

25.35 

37.65 

29.30 

29.70 

32.50 

32.60 

,s  S 


Authority — United  Railroads  records. 

*Not  including  chartered  cars. 

**Spring  Valley  Water  Company  estimates  of  population. 


«/ 


Table  53 


f  • 


:^ 


i 


ii 


'   4'li 


1904 

1905 

$1,418,886 
21.24 

$1,380,811 
19.45 

376.700 
5.64 

388.880 
5.48^ 

2,596,170 

3.131.362 

38.86 

44.09 

64.900,000 
9.71 
258,700 

78.300.000 
11.03 
303.000 

51.920,000 
7.76 
207.000 

62,630.000 
8.82 
242.500 

43,250,000 
6.47 
172.500 

52,200.000 
7.35 
204.000 

37,100,000 
5.55 
147,900 

44,750.000 
6.30 
173.300 

32,450,000 
4.85 
129,300 

39.150,000 
5.52 
151.500 

TABLE  53.  COMPARATIVE  RECORD  OF  PROPORTIONAL  RETURNS  TO  TRAINMEN,  PUBLIC,  COMPANY 

INVESTMENT  SUPPORTED  ON  UNITED  RAILROADS  SHARE  AT  VARIOUS  RATES  OP  RETURNS 

1900  1901  1903  1903 

TRAINMEN'S  SHARE  (Platform  Expense) $1,076,062  $1,172,707  $1,245,347  $1,411,917 

%  Total  Receipts 22.83  22.80  22.38  22.52 

PUBLICS  SHARE  (City  and  State  Taxes,  Car  Licenses) 346.791  362.905  403,337  409,200 

%  Total  Receipts 7.35  7.05  7.24  6.53 

COMPANY'S  SHARE  (Gross  Corporate  Income) 1,943.931  2,091,624  2.290,795  2,459,638 

Stirplus,  Interest,  Misc.  Deductions,  Sinking  Fund 

%  Total  Receipts 41.24  40.65  41.17  39.25 

Investment  Supported  at  4% 48.600,000  52,300,000  57,300,000  61,500.000 

Ratio  Investment  to  Total  Receipts 10.31  10.17  10.30  9.82 

Investment  per  MUe  Track  Owned 218,000*  231,500*  244,000  246,800 

Investment  Supported  at  5% 38,900,000  41,800,000  45,815,000  49,200,000 

Ratio  Investment  to  Total  Receipt* 8.25  8.13  8.23  7.85 

Investment  per  MUe  Track  Owned 174,300*  185.200*  195.000  197,400 

Investment  Supported  at  6% 32,400.000  34,900,000  38.190,000  41.000,000 

Ratio  Investment  to  Total  Receipts 6.87  6.77  6.86  6.54 

Investment  per  MUe  Track  Owned 145.300*  154,200*  162,500  164,500 

Investment  Supported  at  7  % 27,800,000  29,900,000  32,725.000  35,150,000 

Ratio  Investment  to  Total  Receipts 5.89  5.81  5.88  5.61 

Investment  per  MUe  Track  Owned 124,500*  132,400*  139,300  141,000 

Investment  Supported  at  8  % 24,300,000  26.150,000  28.650.000  30,750,000 

Ratio  Investment  to  Total  Receipts 5. 15  5.08  5. 15  4.91 

Investment  per  Mile  Track  Owned 109,000*  115,700*  122.000  123.400 

1906  1907  1908  1909 

TRAINMEN'S  SHARE  (Platform  Expense) $1,069,878  $1,010,857  $1,288,079  $1,324,300 

%  Total  Receipts 17.88  21.21  18.65  17.60 

PUBLIC'S  SHARE  (City  and  State  Taxes,  Car  Licenses) 395,363  407,800  347,920  396.200 

%  Total  Receipts 6.61  8.56  5.04  5.27 

COMPANY'S  SHARE  (Gross  Corporate  Income) 2,738.195  917.720  2,317,391  2.726.628 

Surplus,  Interest,  Misc.  Deductions,  Sinking  Fund 

%  Total  Receipts 45.78  19.26  33.54  36.25 

Investment  Supported  at  4% 68.500.000  23.000.000  58.000.000  68.000.000 

Ratio  Investment  to  Total  Receipts 11 .45  4.83  8.40  ^-0*  ^ 

Investment  per  Mile  Track  Owned 265,000  89.000  225,000  258,000 

Investment  Supported  at  5% 55,000,000  18.300.000  46.400.000  54,500.000 

Ratio  Investment  to  Total  Receipts 9.20  3.84  6.72  7.24 

Investment  per  MUe  Track  Owned 213,000  71,000  180.000  206,500 

Investment  Supported  at  6% 45,500.000  15.300.000  38,700.000  45.400.000 

Ratio  Investment  to  Total  Receipts 7.60  3.21  5.60  APft^^ 

Investment  per  MUe  Track  Owned 176,500  59,300  150,000  172,000 

Investment  Supported  at  7  % 39,000.000  13,100.000  33.200.000  39.000.000 

Ratio  Investment  to  Total  Receipts 6.52  2.75  A'^^^  .^  ,„,^L« 

Investment  per  MUe  Track  Owned 151,000  50.800  129.000  148.000 

Investment  Supported  at  8% 34.200.000  1 1.500.000  29.000.000  34,000.000 

Ratio  Investment  to  Total  Receipts 5 .  72  ^  •  41  A\?2^^  Au^L« 

Investment  per  MUe  Track  Owned 132.500  44.500  112.500  129.000 

NOTE — Year  1902  and  foUowing,  United  RaUroads.    Years  1900  and  1901,  raUways  which  ultimately  comprised  United  RaUroads. 
*Operated  track. 
Authority — United  Railroads  Accounts. 


1910 

1911 

$1,358,985 
17.56 

$1,407,603 
17.67 

448.100 
5.79 

404.000 
5.07 

2,552.430 

2.786.848 

32.98 

34.97 

63.800.000 
8.24 
241.000 

72.000.000 
9.04 
270,000 

51,000.000 
6.59 
193.000 

57.700.000 
7.25 
216.000 

42,500.000 
5.50 
160.000 

48.000.000 
6.03 
180.000 

36.500.000 
4.72 
138,000 

41.200.000 
5.17 
154.000 

31.900.000 
4.12 
120,000 

36.000.000 
4.52 
135.000 

< 


TABLE    54.     RESULTS.  OF    PROPERTY    INSPECTION. 


I. 


United  Railroads  Mileage  Statement. 

San  Francisco  County: 

Operated  electric  track 219.572  miles. 

Non-operated   electric  track 9.195 

Operated   cable   track • 14.700 

Operated  horse  car  track 870 


it 


(< 


Total   mileage   in   San   Francisco. 244.337 
San  Mateo  County: 

San  Mateo  line   26.454 

South  San  Francisco  line 4.420 


Total  San  Mateo  County  mileage.  30.874 

Total  mileage  275.211 

Total  owned 252.768 

Leased  (all  in  San  Francisco) 17.152 

Operated  for  other  Companies....     5.290 


« 

u 
u 
tl 
it 


II. 


Comparative  statement  showing  the  results  of  inspection  and 
the  United  Railroads'  figures  for  mileage  within  San  Fran- 

U.  R.  R.  Inspection. 

March  5, 1912.        Sept.,  1912. 

Total  single  track 244.337  miles     238.62  miles 

III.     Statement  showing  mileage  of  each  rail  section  in  each  of 
the  live  classes  o  f condition  described  on  Page- 


Classes — I 

11.00 

27.60 

27.50 

26.10 

7"  Trilby       5.10 

1.87 

1.49 

1.24 


Rail  Section* 
141  lb    9"  Trilby 

106  lb    9"  Trilby 
109  lb    9"  Trilby 

85  lb    9"  Girder 
114  lb 

107  lb    7"  Trilby 

96  lb    7"  Trilby        

74J^  lb  8"  Tee       

80  lb    8"  Slot   Rail        

70  lb    AW  Girder       

51  lb    4"  Girder       

72  lb  Center  Bearing  Rail . . 

Sheared  Omnibus  51  lb 

Misc.  Light  Tee  Rail   

40  lb  Cable  Girder 

51  lb   Center   Bearing  Cable 


II 
^.7Z 


1.79 


.28 
.35 


6.52 


11.60 
13.70 

•  •  •  •  • 

3.08 

"!53 
.70 
.44 

2.96 

iiiso 

1.67 
1.75 


w^c- 

• 

III 

•  •   «   • 

IV 

V 

3.86 

"\\2 

•  •  •  ■  • 

7.12 

4.08 

.63 

•  •  •  • 

•  •  •  • 

".'28 

'.'is 

4.37 

.47 

5.03 

4.49 

4.68 

•  •  •  • 

1.59 

.70 

7.09 

1.46 

1.73 

1.68 

2.61 

10.18 

1.66 

5.69 

4.36 

.95 

•  •  •  • 

110.84    52.66    37.79    27.Cj3    10.30 


*0wing  to  the  loss  of  records  and  the  similarity  in  the  shapes  of  the  rail  head,  U 
has  been  difficult  to  segregate  certain  types  of  rail  as  laid  in  the  streeet,  viz.:  96  lb.  7", 
107  lb.  7",  and  109  lb.  9";  all  "Trilby"  or  grooved  girder  rail. 


Table  54 


Table  54 
(Cont'd) 


I 


TABLE  54.:    RESULTS  OF  PROPERTY  INSPECTION.; 

CONTINUED 

IV.     Detail  of  condition  and  adequacy  of  irack,.shozving  streets  on 
which  track  should  be  relaid.  .     .  ' 

(A)    37.33  miles  line  laid  with  various  kinds  of  rail,  which  needs 
renewal  as  soon  as  possible. 


Street                       •      • 

From 

To 

Brannan     ~ 

Fifth 

Tenth 

Bryant 

Stanley    .  ■     .    . 

•Ninth 

<< 

Tenth 

Eleventh 

California 

Sixth  Ave. 

Ninth  Ave. 

<< 

Thirteenth   Ave. 

Thirty-third  Ave. 

City  Hall  Ave. 
and  Leavenworth 

Larkin 

Post 

Clay 

Jones 

Davis 

Ellis 

Divisadero        '  '    • 

Franklin 

Fillmore 

Broadway 

Bush 

Frederick 

Stanyan 

Thirty-third  Ave 

Folsom 

Second   . 

Fifth 

(( 

Sixteenth 

Nineteenth 

Kentucky 

Twenty-fourth 

Twenty-sixth 

O'Farrell 

Van   Ness 

Divisadero 

Oak 

Fillmore 

Divisadero 

>i 

Clayton                 •    • 

Masonic 

P.  R.  W. 

California  • 

Sutro  Park 

Pacific 

Baker 

Polk 

Page 

Masonic 

Baker 

Parnassus 

Sunset 

Second  Ave. 

Powell 

Market 

Washington 

Post 

Leavenworth 

-Taylor 

H 

Powell 

Stockton 

Pt.  Lobos 

Thirty-third  Ave 

Sutro   Baths 

Sacramento 

Ferry 

Montgomery 

San  Bruno 

Army  %' 

Gaven 

Second 

Brannan 

Howard 

Tenth 

Howard 

Market 

Twenty-fourth 

Howard 

Harrison 

Twenty-sixth 

Mission 

Bryant 

(B)  26.52  miles  of  inadequate  rail  which  is  in  ened  of  considerable 
maintenance.  This  rail  does  not  warrant  the  expenditure 
necessary  to  put  it  in  good  condition,  and  the  lines  should  be 
relaid  with  standard  rail  after  the  renewals  in  A  are  taken 


care  of. 

Street  From 

Broadway  Kearny 

Eddy  Divisadero 

Eighteenth  Kentucky 

"  Switchback 

Fillmore  Bay 

Folsom  Seventh 

Thirteenth 
Nineteenth 
Jackson  Powell 

Kentucky  Berry 


To 
Powell 
Van  Ness 
Pennsylvania 
Danvcrs 
Green 
Eighth 
Sixteenth 

Twenty-sixth 
Polk 
Twenty- fourth 


Table  54 
(Cont'd) 


TABLE  54.     RESULTS  OF  PROPERTY  INSPECTION. 

CONTINUED 


Street 
Powell,  Mason, 
Taylor  and 
Montgomery  Ave. 
Railroad 
Sunnyside 

Turk 

Twenty-second 

Chattanooga 

Dolores  &  Twenty-fourth 

Washington 


From 


[  Washington 

Bay    View 
San  Jose 
Divisadero 


\ 


Mission 


Powell 


To 

Bay 

Twenty-second  Ave.  S. 

Genessee 

Hyde 

Castro 

Polk 


(C)    7.47  miles  of  85tb  girder  rail  in  need  of  considerable  mainte- 
This  should  be  renewed  after  lines  shown  in  B. 

From  To 

Maple  Fourth  Ave. 

Noe  Guerrero 

Market  Folsom 


nance. 

Street 

California 

Eighth 

First 


Fifth 
Mission 
Sixth  Ave. 


Brannan 

College 

Lake 

Pt.  Lobos 


Market 
Bosworth 
Clement 
Fulton 


(D)    11.17    miles   of  inadequate   rail    in    comparatively    good   con- 
dition, which  should  be  ultimately  replaced. 


Street 
Broadway 
Jackson 
Railroad 

San  Jose,  Thirtieth, 
Diamond  .-  ., 

Washington 


From 
Kearny 
Polk 
Bay   View 

I  Randall 

Polk 


To 

East 

Steiner 

Kentucky 

County  line 

Steiner 


(E)  3.80  miles  af  track  laid  with  adequate  rail,  which  is  in  need  of 
extensive  maintenance  work.  The  more  important  lines  are 
on: 

Street  From  T© 

Kearny  Bush  '  Market 

Mission  Twenty-sixth  Twenty-nmth 

Thirtieth  West 

"  Highland  College 

Stanyan  Frederick  Oak 

(F)  16.05  miles  of  track  in  good  condition,  on  lines  of  very  light 
,     traflfic.     This  track  is  inadequate  for  standard  equipment,  but 

in  view  of  the  light  traffic,  may  be  considered  satisfactory. 

(G)  41.57  miles  of  track  laid  with  85tb  9"  girder  and  74>4  lb  8" 
Tee  rail  which  is  adequate  for  the  lighter  lines  and  is  in  good 
conditon. 

(H)  94.72  miles  of  track  laid  with  adequate  rail  and  in  such  good 
condition  that  no  considerable  repairs  are  necessary. 


Table  54 
(Cont'd) 


i. 


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TABLE  54.     RESULTS  OF  PROPERTY  INSPECTION. 

CONTINUED 

VI.     Standards  of  Track  Construction. 

141  lb.  9";  114  lb.  7";  109  lb.  9";  106  lb.  9";  107  lb  7";  96  lb.  7";  Trilby 

rail. 

Sub-Base:  Nine  inches  of  crushed  rock  ballast  under  ties.  Where  block 
paving  is  used  the  ballast  is  carried  above  the  ties.  In  the  case  of  asphalt 
paving,  the  ballast  is  carried  up  above  the  ties  between  the  rails,  the  space 
directly  under  the  rail  being  concrete. 

Ties— 6"x8"x8'  0"— spaced  2'  centers. 

Tie  Rods— ^"  spaced  12'  centers. 

Joints— 12  bolt. 

85  lb  9"  Girder  Rail— Most  of  this  track  is  ballasted,  and  with  the  ex- 
ception of  the  joints,  which  are  nearly  all  cast  welded,  it  is  the  same  as  the 
present  standard. 

80  lb  8"  Z  Rail— This  is  an  old  cable  slot  rail.  Most  of  this  track  is 
ballasted.  The  rail  is  supported  at  each  tie  by  a  special  cast  iron  chair.  The 
joints  are  practically   all   welded.  „      .         ^   .,    • 

70  lb  4H"  Girder,  51  lb  4"  Girder,  72  lb  Center  Bearing— Rail  la 
supported  at  each  tie  by  a  5"  chair,  placing  the  tie  about  9"  below  the  rail 
head.  Practically  all  of  this  track  is  without  ballast.  Some  of  the  joints 
are  welded,  but  four-bolt  fish  plates  are  more  generally  used. 


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11 


Table  55 


Table  55 
(Cont'd) 


TABLE  55— STATEMENT  OF  EXPIRATIONS  OF  RAILWAY 

RIGHTS  IN  STREETS 

CITY'S   POINT  OF  VIEW 

BASED  ON  MINIMUM   FRANCHISE   TERM   OF   FIRST  OR  PRIMARY  FRANCHISES  HELD   BY 

ORIGINAL  GRANTEES  OR  SUCCESSORS  THERETO 

MUNICIPAL  RAILWAY 


Term  of 

Date  of 

Street 

,    From   . 

.      To 

Grant 

Expiration 

Remarks 

Geary 

Market      ■ 

33d  Avenue 

Geary  from  Presidio 
formerly  called   ] 
Ave. 

10th  Ave. 

Geary       " 

Golden  G.  Park 

• 

Market 

Geary  &  Kearny 

Sansome 

33d  Ave. 

Geary 

"B" 

"B" 

33d 

45th 

Under  construction. 

45th 

"B" 

"C" 

• 

"C" 

45th 

Great  Highway 

, 

' 

Pt.  Lobos 


NO  FRANCHISE  ON  RECORD,  OR  EXPIRED  PRIOR  TO  JAN.  1,  1913 

CALIFORNIA  STREET  CABLE  CO. 
California  Davis  Market 


UNITED  RAILROADS 


San  Bruno  Ave. 
Bemal  Park 
(So.  side) 
24th 
Lincoln  Park 

California 
Around  Lincoln 

Park 
Broadway 


Oakdale 
Folsom 

San  Bruno 
California 

1st  Ave. 
California 

Powell 


Private  right  of     Chenery  & 
way  Diamond 

Mission  Road         Mission  R  oad 
nr.  Amazon  Av. 


Dwight 
Alabama 

Rhode  Island 
Clement 

Lincoln  Park 
48th  Ave.  &  Pt. 
Lobos 
Mason 

Glen  Park 

Private  property 


Oakdale  (form'ly  15th  Ave.S.) 


San  Bruno  (form'ly  Nebraska) 
Private  right  of  way.  (For- 
merly City  Cemetery.) 


Tracks  laid  for  years  but  not 
operated. 


Visitacion  line. 


Sacramento 
Clay 
Stockton 
5th  Ave. 
Powell  Street 
System 

Arguello 


Battery  Powell  ] 

Battery  Stockton  \ 

Clay  Washington  J 

Geary  Golden  G.  Park 

(There  appears  to  be  some  question  that  these  franchises  were 
under  Extension  Order  No.  1882.) 


Gearv 


California 


18  yrs.         Dec.  1.1911 


Expired  Sept.  26.  1912. 

Track  never  removed, 
extended  from  1911   to  1931 

Not  operated,  except  curve 
from  Euclid  Ave.  to 
Clement. 


PRESIDIO  &  FERRIES  COMPANY 


Into  Presidio  Lyon  at  Greenwich 


U.  S.  Govt.  Reservation. 


Stanyan 
Market 
Market 
Mission 
Pacific  Ave. 


Hayes 


Car  house 


REVOCABLE  PERMITS 

UNITED  RAILROADS 

Fulton 

Curve  into  Eighth 
Curve  into  Second 
Curve  into  Eighth 


Cable   track   into   car  house 
near  Polk. 


REVOCABLE  PERMITS— (Cont'd) 
CROCKER  ESTATE 


Street 

Mission  (South 
of  Amazon) 


From 


To 

Into  private 
property 


Term  of 
Grant 

10  yrs. 


Date  of 
Expiration 

Mar.  20.  1919 


Geary 
California 

Market 


Kearny 
Market 

City  front 


1913 


FORFEITURES  BY  COURT  DECREE 

UNITED  RAILROADS 
Taylor 

Kearny 

SUTTER  STREET  RAILWAY  CO. 
Sutter  &  Sansome 

FUTURE  FRANCHISE  EXPIRATIONS 

PRESIDIO  &  FERRIES  CO. 
Term   25    years.     Expires    December    10,    1913. 


Remarks 

Charter  apparently  gi^'es  no 
power  to  Board  of  Sup>er- 
visors  to  grant  such  permits. 
Operated  as  above  by  U. 
R.  R.   See  "No  Franchise." 


Judgment  in  Superior  Court 
in  two  actions.  No  appeal 
vet  taken. 


Judgment  of  forfeiture.     No 
appeal  yet  taken. 


Route— From  Ferry  foot  of  Market  Street,  on  The  Embarcadero  (formeriy  East  St.)  to  Washington  and  Jackson 
sWts  on  both  of  these  streets  to  Columbus  (formeriy  Montgomery)  Ave.  to  Union  Street;  thence  to  east  line  of 
Lvon  St?eet  also  on  Larkin  from  Union  to  Vallejo,  thence  to  Union  Street;  also  on  Sterner  f'-o^^.Umon  to  Greer^- 
wfch  also  on  Baker  from  Union  to  Jefferson,  thence  to  Lyon  Street;  also  on  Greenwich  from  Baker  to  Presid.o 
line.'   (This  latter  track  extends  about  »/«  mile  into  Presidio.) 


1929 


California 


Davis 


CALIFORNIA  STREET  CABLE  CO. 
Parker  Ave.  50  yrs.         Feb.  17.  1929 


Jones 
O'Farrell 


Market 
Pine 
Hyde 
Market 


Pine 
Hyde 
Jefferson 
Jones 


40  yrs. 
39  yrs. 


May  3.  1929 
May  3,  1929 


Originally  two  grants.  25  5rrs 
Order  No.  1538  extends 
them  to  expire  in  50  years. 
From  200  ft.  W.  of  Presidio 
Ave.  to  Parker  Ave.  not 
operated  under  this  fran- 
chise. 

Bush  from  Jones  to  Hyde, 
thence  to  Pine,  not  oper- 
ated. 


Columbus 


Columbus 

Union 

Broadway 

Pacific 

Jackson 

Jackson 

Washington 


Montgomery  Powell 


UNITED  RAILROADS 
50  yrs. 


Nov.  14.  1929 
&  Nov.28,1929 


Clay 


California 
California 


Pine 


Mason 

Stockton 

Columbus 

Columbus 

Embarcadero 

Sansome 

Embarcadero 

Sansome 

Kearny 


Parker 
First 


Beach 

Powell 

Powell 

Stockton 

Sansome 

Columbus 

Sansome 

Stockton 

Van  Ness  Ave. 


First 
Sixth 


50  yrs. 
50  yrs. 
50  yrs. 
50  yrs. 
50  yrs. 
50  yrs. 

50  yrs. 


50  yrs. 
50  yrs. 


Nov. 
Nov. 
Nov. 
Nov. 
Nov. 
Nov. 
Nov. 
Nov. 


28. 1929 
14. 1929 
28, 1929 
3, 1929    \ 
28,1929/ 
3,  1929    I 
28.  1929  S 
29. 1929 


Feb.  17. 1929 
Nov.  29.  1929 


Market 


Sansome 


Not  operated  except  about 
half  block  from  Union  to 
Powell,  and  from  Mason  to 
Tavlor. 


Abandoned  operation. 
Abandoned  operation. 

Operated  only  from  Mont- 
gomery to  Kearny. 

Track  removed  from  Larkin 
to  Van  Ness  many  years 
ago.  This  was  first  cable 
line  operated   in  the  world. 

Never    oi)erated    under    this 
franchise.    Used  under  Om- 
nibus franchise. 
Not  operated  for  many  years 


1 


Table  55 
(Cont'd) 


I 


FUTURE  FRANCHISE  EXPIRATIONS.  UNITED  RAILROADS 


1929— (Cont'd) 

Street  From 

Market  to  Battery 
Battery  to  Sansome 


To 


Bush 
Bush 


Sutter 
Sutter 
Post 
Post 

Turk 


Market 
Market 


Market 
Market 
Kearny 
Fillmore 

Market 


Sansome 
Kearny 


Grant  Ave. 
Presidio  Ave. 
Stockton 

Presidio  (formerly 
Cemetery  Ave.) 
1st  Ave. 


•McAllister 
Private  property 
from 
♦Fulton 

♦Hayes 

Fell 

Page 
♦Haight 
tWaller 

Frederick 

Pamasstis 


♦Market 

Castro 

♦Valencia 

Mission 

West  Mission 
Brady 
Howard 
Tehama 

Polsom 
Brannan 


Brannan 

Bluxome 

Townsend 

Townsend 

Berry 

Potrero  Ave. 


Market 

Central  Ave. 
Private  property 

and  Masonic 
Market 
Baker 
Fillmore 
Market 
Stan  y  an 
Masonic 
Stanyan 


Central  Ave. 

Fulton 
19th  Ave. 

Stanyan 
Stanyan 
Masonic 
Stanyan 
200  ft.  east 
Arguello  Blvd. 
Fifth  Ave. 


Ferry 

Market 

Market 

Embarckdero 

Courtland  Ave. 

Silver  Ave. 

Mission  &  12th 

Market 

Embarcadero 

3d 

i^'irst 
6th 


Castro 
26th 

Mission 

Courtland  Ave. 
Silver  Ave. 
County  Line 
Mission  nr.  14th 
West  Mission 
26th 
West  about  300  ft. 

Army 
9th 


3d  itt 

4th  5th 

3d  200  ft.  East  of  4th 

200  ft.  East  of  4th  4th 
3d  4th 

23d  25th 


San  Bruno  Ave.     2Sth 


Embarcadero 

First 
Second 


Third 
Fourth 


Market 
Market 
Market 
Market 


Market 
Market 


Army 


Mission 
Howard 
Polsom 
Townsend 


••Southerly  End" 
(Channel  St.) 

"Southerly  End" 


50  yrs. 
50yrs. 
39  yrs. 
50  yrs. 
37  yrs. 
39  yrs. 
31  yrs. 

50  yrs. 
43  yrs. 
SO  yrs. 
50  yrs. 
39  yrs. 
37  yrs. 
39  yrs. 
39  yrs. 
50  yrs. 
50  yrs. 


50  yrs. 
50  yrs. 
50  yrs. 
50  yrs. 
43  yrs. 
43  yrs. 


43  yrs. 


50  yrs. 
43  yrs. 
50  yrs. 
50  yrs. 


50  yrs. 
50  yrs. 


Date  of 
Expiration 

Nov.  3,  1929 
Nov.  14.  1929 
Nov.  28.  1929 
Nov.  3.  1929 
[  Nov.  28,  1929 
Nov.  28.  1929  \ 
Nov.  3.  1929  / 


Term  of 
Grant 

50  yrs. 

50  yrs. 

50  yrs. 
50  yrs. 

50  yrs. 
50  yrs. 
50  yrs. 
50  yrs. 

50  yrs.    Nov.  3,  1929 


Nov.  28.  1929 
Nov.  14.  1929 
Nov.  3.  1929 
Nov.  3.  1929 


50  yrs.    Sept.  20,  1929 


Sept.  20.  1929 
Nov.  3.  1929 
Nov.  28.  1929 
Sept.  20.  1929 
Nov.  28.  1929 
Nov.  28.  1929 
Nov.  28,  1929 


Sept.  20.  1929 
Oct.  9.  1929 
Sept.  20.  1929 
Nov.  28.  1929 
Nov.  28.  1929 
Nov.  28.  1929 
Nov.  28.  1929 
Nov.  28.  1929 
Nov.  28.  1929 
Nov.  28.  1929 


50  yrs.    Nov.  14.  1929 


Nov.  3.  1929 
Sept.  20,  1929 
Nov.  28,  1929 
Nov.  14.  1929 
Dec.  24.  1929 
Dec.  24.  1929 


Dec.  27.  1929 


Nov.  28.  1929 
Nov.  27.  1929 
Nov.  14.  1929 
Nov.  28,  1929 


Nov.  28.  1929 
Nov.  14.  1929 


Remarks 


Market  to  Battery,  no  track 
ever  laid.  Battery  to  San- 
some, track  laid,  not  oper- 
ated. 


Operation  abandoned. 

Divisadrro  to  First  never  con- 
structed. Company  con- 
ceded forfeiture  of  this 
grant  by  years  after  getting 
another  franchise  (1892)  to 
operate  from  Fillmore  W. 


Never  constructed. 


Arguello  formerly  1st  Ave. 

Recently  operation  com- 
menced W.  of  3d  Ave.  un- 
der extension  grant. 


Embarcadero  formerly  East. 

Mission  S.  of  26th  formerly 

Mission  Road. 
Not  operated. 
No  track  laid. 

Operation  abandoned.  Tracks 
taken  up. 

For  many  years  operated  only 
to  horse  car  bam  on  Bran- 
nan near  8th. 

Abandoned  operation. 
Never  operated  from  2d  to  3d. 

Abandoned  operation.  Tracks 
taken  up.  25th  formerly 
Yolo. 

Army  formerly  Colusa.  San 
Bruno  Ave.  formerly  Ne- 
braska St. 


Not  constructed  S.  of  Howard 
until  about  1896.  Never 
constructed  S.  of  Brannan. 

Never  constructed  S.  of  Berry. 
For  years  constructed  only 
to  Brannan  St. 

Never  constructed  S.  of  Ken- 
tucky. Tracks  taken  up 
from  Townsend  to  Berry 
some  years  ago. 


♦  Question  as  to  date  of  expiration,  whether  1929  or  1932;  Amendintj  Order  No.  1676  ambiguous. 
t  Question  as  to  date  of  expiration,  whether  1929  or  1932;  Amending  Order  No.  1736  ambiguous. 


Ilii 


Table  55 
(Cont'd) 


FUTURE  FRANCHISE  EXPIRATIONS,  UNITED  RAILROADS 


1929— (Cont'd) 


Street 

From 

•Fifth 

Market 

Sixth 

Eighth 

Eighth 

Ninth 

12th 

Brady 

23d 

Market 
Market 
Bryant 
Market 
Market 
Market 
Howard 

24th 
25th 

Howard 
Potrero 

26th 

Army 
Precita 

Mission 

Mission 

Howard 

Folsom 

Folsom 

Folsom 

29th 
Powell 

Mission 
Mission 

Coleridge 
Virginia  Ave. 

Powell 
Mission 

To 

Bluxome 

Brannan 

Folsom 

Brannan 

Mission 

Mission 

West  Mission 

Potrero 

Potrero  Ave. 
Sen  Bruno  Ave. 

Folsom 


Term  of 
Grant 

50  yrs. 

50  yrs. 
50  yrs. 
35  yrs. 
50  yrs. 
39  yrs. 
39  yrs. 
43  yrs. 

43  yrs. 
43  yrs. 

**35  yrs.    ] 


Date  of 
Expiration 

Sept.  20, 1929 


Nov.  12, 
Nov.  14, 
Nov.  12, 
Nov.  14, 
Nov.  28 
Nov.  28. 
Dec.  24. 


1929 
1929 
1929 
1929 
1929 
1929 
1929 


Courtland  Ave.  Mission 


San  Bruno 
Army 

Noe 

Coleridge  (former-  ] 
ly  Calif.  Ave.)      \ 
Courtland  Ave.        ^ 
Coleridge  J 

Folsom,    to     Eu- ) 
genie,  to  Bocana.  } 
to  Courtland.       j 


31  yrs. 
31  yrs. 

37  yrs. 
37  yrs. 


Dec.  27,  1929 
Dec.  27,  1929 


Nov.  28,  1929 
Nov.  28,  1929 
Nov.  14,  1929 
Nov.  14,  1929 
Nov.  14,  1929 

Nov.  28,  1929 
Nov.  28.  1929 


37  yrs.         Nov.  28.  1929 


Remarks 

Not  operated  from  Brannan 
to    Bluxonie. 


Not  operated  for  many  years. 

Tracks  laid.     Not  operated. 

Track  laid  years  ago.     Later 
taken  up.     Never  operated. 

Abandoned  operation.  Tracks 

taken  up. 
♦♦"Expires    with    connecting 

lines." 


Not  operated  from  Folsom  to 
a  point  east  of  Alabama. 

Not  operated.  A  track  is 
laid  on  Virginia  and  a  short 
distance  on  Coleridge  for 
connection  to  29th  &  Mis- 
sion car  bam. 

Courtland  Ave.  not  built  until 
about  two  years  ago.  Other 
streets  never  built  upon. 


Park  Street  and  Holly  Park  Circle. 

Andover  Street,  Richland  Ave.  and  Holly  Ave 

east  from  Mission 

Bosworth  Mission 

Circular  Ave.  Bosworth 

Sunny  side  Ave.      Circular  Ave. 


37  yrs.         Nov.  28,  1929       Never  constructed. 


Glen  Park 
Sunny  side  Ave. 
Plymouth  Ave. 
(extended) 


Ocean  Ave.  &        Mission 
Ocean  House  Rd. 


Plymouth  Ave. 

(extended) 
Onondaga  Ave. 
Sickles  Ave. 


Ocean  Ave. 

Mission 
Mission 


Great  Highway 
(Ocean  Beach) 


Sunny  side  Ave. 

(extended) 
Ocean  Ave. 
Ocean  View 

(San  Jose  Ave.) 


31  yrs. 
34  yrs. 
34  yrs. 


34  yrs. 


Nov.  28,  1929 
Nov.  28,  1929 
Nov.  28.  1829 


Nov.  28,  1929 


34  yrs.         Nov.  28,  1929 


34  yrs. 
34  yrs. 


Nov.  28,  1929 
Nov.  28,  1929 


Curve  through  Golden  Gate  Park  from  Waller  south 
and  west,  thence  through  private  property  to 
Arguello  Blvd.  (formerly  First  Ave.) 
t"H"  St.  Arguello  Blvd.       49th  Ave.,  thence   1 

across  G.  G.  Park  \ 

49th  Ave.  "B"  St.  ) 

G.  Park  on  Great  Highway  to 


Curve  out  of  G. 

Cliff  House 
6th  Ave. 
Arguello 
tStanyan 

Masonic 

Baker 

Fillmore 


Laguna 


46  yrs.         Nov.  28,  1929 


50  yrs.         Nov.  28,  1929 


California 

Fulton 
f  Haight 
\  Frederick 

Page 

Turk 

Turk 


Hayes 


Park 

Turk 

Frederick 

Parnassus 

Frederick 

Fell 

Post 


McAllister 


50  yrs. 
50  yrs. 
50  yrs. 
37  yrs. 
31  yrs. 
39  yrs. 
50  yrs. 
50  yrs. 


Nov.  28,  1929 
Nov.  29,  1929 
Nov.  3.  1929 
Nov.  28,  1929 
Nov.  28,  1929 
Nov.  28,  1929 
Nov.  3,  1929 
Nov.  3.  1929 


Polk 


Sutter 


Union 


50  yrs.         Sept.  20,  1929 


50  yrs.         Nov.  14,  1929 


Originally  constructed  to 
about  Baden  St.  Now  op- 
erated to  Genessee  St. 

Street  unavailable  from  Mis- 
sion to  Onondaga  Ave. 
Never  constructed  from 
iunction  at  Ingleside  (now 
Junipero  Serra  Blvd.)  to 
Great  Highway.  Stree 
closed  in    1906. 

Never  constructed. 


Never  constructed. 

Not  used.     Tracks  taken  tip 
some  years  ago. 

"H"  St.,  now  Lincoln  Way. 


Never  built. 

Never  built  under  this  grant. 

Not  operated  from  Frederick 
to  Carl. 

Never  built. 

Not  operated  for  years.  Later 
another  franchise  granted 
over  entire  length  of  street. 

Not  operated.  Attempt  to 
exclude  this  street  by 
amendment  to  original  fran- 
chise years  after  its  grant. 


♦Question  as  to  date  of  expiration,  whether  1929  or  1932;  Amending  Order  No.  1676  ambiguous. 
T  Question  as  to  date  of  expiration,  whether  1929  or  1932;  Amending  Order  No.  1736  ambiguous. 


Table  55 
(Cont'd) 


11 


1  i<i 


I 


11! 


I! 


FUTURE  FRANCHISE  EXPIRATIONS.  UNITED  RAILROADS 


1929— (Cont'd) 


Street 
Polk 

Larkin 
Leavenworth 

Taylor 
Mason 

Powell 
Powell 

f>tockton 

Grant  Ave. 

MontRomery 

Kearny 
Kearny 
Sansome 


.  Battery 
Embarcadero 


From 


Union 

Market 
Clay 


Post 
f  Columbus 
\  Bay  St. 

Market 


Broadway 
Broadway 
Union 

Washington 


f  Market 
{  Geary 
1  Market 
Market 

Market 

Pacific 

Market 

f  Market 
\  Bush 
[  Jackson 

Market 

Foot  of  Market 


1930 


Pacific  Ave. 

Embarcadero 

Folsom 

Folsom 

Ninth 
Eighth 
Bryant 
26th 


Polk 

Howard 

Embarcadero 

Army 

Mission 
Folsom 
Second 
Bryant 


1931 


Jackson 

Washington 

Clay 

Sacramento 
Sacramento 
Stockton 

Powell 

Mason 

Taylor 
Urkin 


Powell 

Stockton 

Embarcadero 

Embarcadero 

Powell 

Sacramento 


To 


Tonquin 

Sutter 
Jefferson 


Market 
Bay  St. 
Jefferson 
Geary 


Term  of       Date  of 
Grant       Expiration 

39  yrs.         Nov.  14.  1929 


50  yrs. 
50  yrs. 


30  yrs. 
50  yrs. 
35  yrs. 
50  yrs. 


"Northerly  End" 
Columbus  50  yrs. 

Jefferson  50  yrs. 


Union 


Post 
Post 
Bush 
Jackson 

Pacific 
Broadway 
Chestnut 
(Sea  Wall) 

Jackson 

Jackson 

Chestnut 

California 

Jackson 


SOyrs. 


50  yrs. 
50  yrs. 
50  yrs. 
50  yrs. 

50  yrs. 
50  yrs. 


50  yrs. 
SO  yrs. 
30  yrs. 
SO  yrs. 
SO  yrs. 


Nov.  14.  1929 
Nov.  29,  1929 


Nov.  12.  1929 
Nov.  14.  1929 
Nov.  14.  1929 
Nov.  3.  1929 


Nov.  14.  1929 
Nov.  28.  1929 

Nov.  28,  1929 


Sept.  20.  1929 
Nov.  3.  1929 
Nov.  28.  1929 
Nov.  28,  1929 

Nov.  14.  1929 
Nov.  14.  1929 


Nov.  28.  1929 
Nov.  12.  1929 
Nov.  12.  1929 
Nov.  14.  1929 
Nov.  3.  1929 


UNITED  RAILROADS 


200  ft.  W.  of 
Divisadero 
Folsom 
First 
Stoneman 

Brannan 
Bryant 
26th 
Folsom 


43  yrs.  Apr.  14.  1930 


41  yrs. 
41  yrs. 
41  yrs. 

43  yrs. 
41  yrs. 
41  yrs. 
41  yrs. 


Aug.  2.  1930 
Aug.  2.  1930 
Oct.  16.  1930 

Apr.  14.  1930 
Aug.  2.  1930 
Aug.  2,  1930 
Oct.  16,  1930 


UNITED  RAILROADS 


Presidio  (formerly 
Cemetery  Ave.) 

Steiner 

Battery 

Battery 

Walnut 

Clay 


Geary  (or  Market)  Jackson 

Q\g^y  Greenwich  and 

Columbus  Ave. 
Bay  St. 


} 


Columbus 
Sacramento 


Clay 


25  yrs. 
45  yrs. 

25  yrs. 
45  yrs. 
25  yrs. 
45  yrs. 
25  yrs. 
45  yrs. 
20  yrs. 
40  vrs. 
20  yrs. 
30  yrs. 
45  yrs. 
25  yrs. 
45  yrs. 
25  yrs. 
45  yrs. 
20  yrs. 
40  yrs. 


July  12. 1911 
July  14.  1931 

July  12. 1911 
July  14.  1931 
July  12.  1911 
July  14.  1931 
July  12.  1911 
July  14.  1931 
Oct.  22.  1911 
July  14.  1931 
Oct.  22.  1911 
July  14.  1931 
May  3.  1931 
Oct.  22.  1911 
July  11.  1931 
Oct.  22.  1911 
July  14.  1931 
Oct.  22,1911 
July  14,  1931 


Remarks 

Not  built.     Three  blocks  only 

from    Union    to    Lombard 

built  1907. 
Not    operated  from    Post    to 

Sutter.     Track  taken  up. 
Abandoned  operation.  Tracks 

taken  up.     Never  operated, 

Vallejo  to  Jefferson. 

Not  operated. 

Not  operated  for  years.  Later 
Powell  St.  Cable  franchise 
granted. 

Built  during  'seventies  to 
Francisco  St.  About  10 
years  ago  extended  to  Jef- 
ferson. 

Not  operated  from  Washmg- 
ton  to  Broadway.  Tracks 
taken  up. 

Tracks  taken  up  some  years 
ago.  Grant  Ave.  formerly 
IXipont  St. 

Not  operated  from  Washing- 
ton to  Jackson. 

Not  operated  from  Market  to 
Bush,  although  track  laid. 


Track  laid;   not   operated. 


Not    operated    from    Bernal 
Park  to  Stoneman. 


Date  of  expiration  under  Ex 
tension  Order    1882.  ques- 
tionable. 

Not  operated  from  Stockton 
to  Powell. 


No  track  built. 


Not   operated   from   Clay   to 
Washington. 


Table  55 
(Cont'd) 


FUTURE  FRANCHISE  EXPIRATIONS.  UNITED  RAILROADS 


1932 


Street 


From 


To 


Spear 
Tenth 
Tenth 


Army 


Taraval  ("T") 

33d  Ave. 
Vincente 
35th  Ave. 
Sloat  Blvd. 
46th  Ave. 
Wawona 
19th  Ave. 


Market 
Market 
Howard 


Howard 


Bryant 

Howard 

Brannan 


Folsom 


Parkside  Transit  Co. 


Easterly  end  at 

12th  Ave. 
Taraval 
33d  Ave. 
Vincente 
Ocean  Ave. 
Sloat  Blvd. 
46th  Ave. 
Wawona 


Term  of 

Date  of 

Grant 

Expiration 

50  yrs. 
SOyrs. 
50  yrs. 

Dec.  11.  1932 
Nov.  10.  1932 
Dec.  11,  1932 

50  yrs. 

Dec.  11,  1932 

ased  to  United  Railroads 

25  yrs. 

Oct.  17.  1932 

25  yrs. 

Oct.  17.  1932 

25  yrs. 

Oct.  17.  1932 

25  yrs. 

Oct.  17.  1932 

1933 


Polk 


Market 


33d  Ave. 

Vincente  ("V") 
35th  Ave. 
Sloat  Blvd. 
Great  Highway 
Wawona  ("W") 
Great  Highway 
Sloat  Blvd. 


UNITED  RAILROADS 
Sutter  SO  yrs.         Jan.  3,  1933 


Remarks 

Tracks  taken  up. 

Probably  only  a  part  built  or 
operated.  Four  years  later 
another  franchise  was 
granted  over  same  route. 

Never  built. 


Not  built  from  "Easterly 
End"  or  12th  Ave.  to  20th 
Ave. 


Market  to  Grove,  cable  never 
built .  Operated  under  sub- 
sequent electric  and  cable 
franchise.  Grove  to  Post, 
never  built.  See  1936, 
below. 


Post 


20th  Ave, 


Larkin 


Polk 


50  yrs.         Jan.  3,  1933 


1935 


Gough 


1936 


Parkside  Transit  Co.,  Leased  to  United  Railroads 

Lincoln  Way  Wawona,  thence  25  yrs.         May  12.  1933 

to  19th  Ave. 

Qoush  Street  Railway,  Leased  to  United  Railroads 

Market  McAllister  25  yrs.         June  13,  1935 

UNITED  RAILROADS 


Lincoln  Way    formerly  "H* 
Street. 


Post 

Montgomery 

Kearny 

so  yrs. 

Dec.  27,  1936 

Post 

Stockton 

Leavenworth 

50  yrs. 

Dec.  27.  1936 

Ellis 

Market 

Leavenworth 

} 

47  yrs. 

June  17.  1936 

Cable  tracks  from  Divisadero 

Ellis 

Leavenworth 

Broderick 

SO  yrs. 

Dec.  27.  1936 

to  Broderick  removed  about 
1896. 
Tracks  taken  up  on  Potrero 

Leavenworth  from  Post  to  City  Hall  Ave.,  to  Grove 

) 

St.,  to  Polk,  to  Market  and  10th, 

to  Brannan  and  Po- 

■  y 

SO  yrs. 

Dec.  27,  1936 

Ave.     from     Brannan     to 

trero  Ave., 

to  25th. 

) 

25th. 

Brannan 

3d 

6th 

47  yrs. 

June  17.  1936 

Not  constructed  in  time  re- 
quired by  franchise.  No 
service  given  until  recent 
years. 

Brannan 

9th 

10th 

47  yrs. 

June  17, 1936 

Not  constructed  in  time  re- 
quired by  franchise. 

24th 

Potrero 

San  Bruno 

47  yrs. 

June  17.  1936 

San  Bruno 

24th 

Army 

47  yrs. 

June  17, 1936 

Track  taken  up  about   1896. 

San  Bruno 

Army 

Oakdale 

} 

Tracks  taken  up  on  Oakdale 

Oakdale 

San  Bruno 

Lane 

47  jrrs. 

June  17,  1936 

about   1896.     Oakdale  for- 

merly 15th  Ave.  S.     Lane 

formerly   "L"   St. 

Oak 

Fillmore 

Stanyan 

) 

SO  yrs. 

Dec.  27,  1936 

Stanyan 

Oak 

Haight 

Judah 

5th 

9th  Ave. 

25  yrs. 

Jan. 23,  1936 

9th 

Judah 

Pacheco  ("P") 

25  yrs. 

Jan. 23, 1936 

Arguello  Blvd. 

Frederick 

Lincoln  Way 

45  yrs. 

Dec.  27,  1936 

First 

Bryant 

Brannan 

47  yrs. 

June  17,  1936 

Never  built. 

I' 


*-4J 


{    i] 


i   1 

I 


h  li! 


i 


Table  55 
(Cont'd) 


il 


1940 


FUTURE  FRANCHISE  EXPIRATIONS,  UNITED  RAILROADS 


Street 

Embarcadero 

Broadway 

Divisadero 

Sacramento 
First  Ave. 
Lake  St. 
GTarrell 

O'Farrell 


Eddy 


From 

Jackson 

Embarcadero 

Vallejo 

Walnut 
Sacramento 
Arguello  Blvd. 
Hyde 


To 

Broadway 
Columbus 
Sacramento 

Arguello  Blvd. 
Lake 

California 
Scott 


Term  of       Date  of 
Grant       Expiration 


50  yrs. 
50  yrs. 

50  yrs. 
50  yrs. 


Dec.  23.  1940 
Dec.  23.  1940 

Dec.  23.  1940 
Dec.  29.  1940 


Hyde 

Scott 

Fell 

Baker 

Page 

Steuart 

Bryant 


[  Scott  Divisadero 

\  East  3^-block  from  Scott 
[  West  J^-block  to  Divisadero 

Market  Divisadero 

Market  Hyde 

Market  Divisadero 

Eddy  GTarrell 


45  yrs.    Dec.  29.  1940 


SO  yrs. 
50  yrs. 
50  yrs. 


Dec.  29.  1940 
Dec.  23.  1940 
Dec.  29.  1940 


GTarrell 

Scott 

Fell 

Masonic 

Howard 

Spear 


Fell 

Baker 

Page 

Stanyan 

Harrison 

2d 


50  yrs.         Dec.  29.  1940 


Brannan  Beale  First 

Stanley  Place  Bryant  Harrison 

Harrison  from  Steuart  to  14th  to  Guerrero  to  San  Jose 

Ave   to  30th  Street  to  Chenery  to  Diamond  to  San 

Jose  Ave.  (Old  San  Jose  Road)  to  County  Line. 
18th  from   Guerrero  to  Falcon,  thence  returning  on 

"Switch  back"  to  Corbett  Road  to  Clayton  Street 

to  Ashbury  to  Frederick. 
Clayton  Frederick  Waller 

Waller  Clayton  ^tanyan 

Clayton  Page  -  Waller 

Cole  Waller  Parnassus 

Parnassus  Cole  Stanyan 

Carl  Cole  Stanyan 


50  yrs. 
50  yrs. 
50  yrs. 

50  yrs. 
50  yrs. 
50  yrs. 


50  yrs. 


50  yrs. 

50  yrs. 
50  yrs. 

50  vrs. 


Dec.  29.  1940 
Dec.  23,  1940 
Dec.  23,  1940 

Dec.  23,  1940 
Dec.  23.  1940 
Dec.  23,  1940 


Dec.  23,  1940 


Dec.  11.  1940 

Dec  29,  1940 
Dec.  29.  1940 

Dec.  29.  1940 


1941 


UNITED  RAILROADS 


Eighth  from  Brannan  to  Kansas,  thence  to   17th  to       50  yrs. 
Connecticut  to  18th  to  Kentucky. 

4th  from  Berry  to  Kentucky  to  Railroad  Ave.  to  San       50  yrs. 
Bruno  Ave.  southerly  to  a  point  20ft.  north  of  County 
Line. 


Nov.  18.  1941 
Nov.  18,  1941 


1942 


UNITED  RAILROADS 


16th  from  Kansas  to  Church  to  Duboce  to  Fillmore, 
Turk  and  Post,  to  Bay  of  San  Francisco. 


50  yrs.         June  3.  1942 


Divisadero 
Balboa  ("B") 
19th  Ave. 
22d 
Dolores  and 

Chattanooga 
24th 
20th 


Sacramento 
Arguello 
Balboa 
Howard 

22d 

Dolores 

Kentucky 


Page 
19th  Ave. 
G.  G.  Park 
Chattanooga 

24th 

HofiFman 

Maryland 


50  yrs. 
50  yrs. 


Dec.  6,  1942 
June.'.  1942 


50  yrs.         Dec.  6.  1942 


50  yrs. 
50  yrs. 
50  yrs. 


Dec.  6,  1942 
Dec.  6,  1942 
Dec.  6,  1942 


Remarks 


Not  built  for  some  years  after 
grant. 

Never  built  from  Jackson  to 
Vallejo. 


Originally    double    track, 
changed  to  single. 


Not  operated  from  Eddy  to 

Ellis. 
Tracks    taken    up    on  Scott, 

Fell     and     Baker     Streets 

about  1896. 


Never   built    from    Spear    to 

Stanley  Place. 
Never  built. 

Not  operated  since  1906  from 
Stanley  Place  to  3d  Street. 


Not  operated. 
Not  operated. 


Never  built  from  8th  and 
Brannan  to  Kansas  and 
thence  to  16th 

Franchise  not  to  go  into  effect 
until  surrender  of  Potrero 
and  Bay  View  franchise  on 
same  streets.  No  record 
of  such  surrender. 


Not  operated  from  Bay  Street 
to  Bay  of  S.  F. 


Never  built 


Not  operated. 


C/2 

< 

H 
Z 

H 
H 

i 

< 


Table  56 


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Table  57 


TABLE  57— RESETTLEMENT  PLAN  5 
propfrtr""^'  ^""^  ^^^  Purposes  of  illustration  only,  the  following  values  for  the 

Initial  tangible  value $21,000,000 

Initial  Agreed  capital  value 35,000,000 


pi 


Year 


1914 
1920 
1925 
1930 
1935 
1940 
1945 
1950 


PER  CENT  DISTRIBUTION  OF  INCOME 


Operation 

Less 

Taxes 


Company's  Total     Company's 
Share— 5%  Return     Net  Share 

on  (B)  and  45% 

of  Residual  Net 


62.0 
62.0 
62.0 
62.0 
62.0 
62.0 
62.0 
62.0 


24.8 
25.0 
24.2 
23.7 
21.9 
21.9 
21.9 
21.9 


5%  Return 
on  (B) 


20.6 
20.8 
19.5 
18.7 
15.2 
15.2 
15.2 
15.2 


City 

and 

State 


10.2 
10.1 
10.7 
11.2 
13.1 
13.1 
13.1 
13.1 


City's  55% 

Share  of 

Residual  Net 


5.2 
5.1 
5.7 
6.2 

8.1 
8.1 
8  1 
8.1 


PRINTED  AND   BOUND 
BY 

THE  HICKS-JUDD  CO 

SAN    FRANCISCO 


11 


PER  CENT  RETURN  ON  INVESTMENT 

(A)  Actual  investment  or  cost  to  reproduce  property  new 

(B)  Agreed  capital  value. 


Year 


19M 
1920 
1925 
1930 
1935 
1940 
1945 
1950 


Net  Receipts 

30%  of 

Gross 

Receipts 

(A)      (B) 


Company's  Total 

Share — 5%  Return 

on  (B)  and  45%  of 

Residual  Net 


11.4 

9.7 

9.8 
9.8 
9.9 
9.9 
9.9 
9.9 


7.3 
7.2 
7.7 
8.0 


(A) 

9.4 
8.1 
7.9 
7.8 
7.2 
7.2 
7.2 
7.2 


(B) 

6.0 
6  0 
6.2 


Company's 

Net  Share 

5%  Return 

on  (B) 
(A)     (B) 


7.8 
6.7 
6.4 
6.1 
5.0 
5.0 
5.0 
5.0 


5.0 
5.0 


City 

and 

State 

(A)     (B) 


City's  55% 

Share  of 
Residual  Net 


3.9 

3.2 
3.5 
3.7 
4.3 
4.3 
4.3 
4  3 


2.5 
2.4 
2.7 
3.0 


(A) 

2.0 
1.6 
1.9 
2.0 
2.7 
2.7 
2.7 
2.7 


(B) 

1.26 
1.22 
1.47 
1.67 


Plate  1 


I 


OPERATING  TRACKAGE  MAP 

STREET  RAILWAYS  OF  SAN  FRANClSCa 


BlON  J.  ARNCXJ3 

5Wn»Na3COTRfthePOPTW10N  Pf?OBLCn 

TO  "nC  HON.  BOARD  OF  5UPE:RV150R3 
CITY  or  5<VN  rRANQSCO 


PLATE  1.— OPERATING  TRACKAGE  MAP. 


Plan  of  all  operating  street  railway  trackage  in  the  City  and  County  of  San  Francisco,  and  part  of  the  United  Railroads  trackage  in  San  Mateo  County.     The  legend  indicates 

(a)  track  operated,  (b)  not  operated  for  revenue,  and  (c)  under  construction,  also  single  and  double  track  for  electric,  cable  and  horse  car  lines,  car  barns,  car  houses,  and  power 

substations.    The  most  noticeable  feature  is  the  large  area  unserved  within  the  present  city  limits,  such  as  Sunset,  Merced,  San  Miguel,  University  Mound  and  South  San  Francisco. 


Plate  2 


BX55ENGER  TR^NSPORTAHON 

AND  GROWTH  MAP  OF  POPULATION 

SAN  FRANC  1 5C0  6-    BAY    COUNTiK 

*ccorm>MviMe  the  mttKtrr  or 
BION  J.  ARNOUD 

ON    TME 

5^NFraa^lQ5C0Tf?AN5FOR^ATl0N  Pf?OBLEM 

TD  ThE  HON    BQ^RD  OF  5UPEFPV130P3 
CITY  OF   SANFRANCISOO 


PLATE  2.— GENERAL  TRANSPORTATION  MAP  OF     SAN   FRANCISCO  AND  /COMMUTER   DISTRICT 


the 

possibilities  of  a  great  *v.v«.^  .. •  o       -  —      mt --  -_r--  ,.  ,  _ 

under  Twin  Peaks  stand  out  in  clear  contrast  with  the  enormous  success  of  transbay  development  by  electric  trz*»"S,  even  "j^der  the  permanent  handicap  of  at  least  20  mmutes  more 
running  time  via  the  water  routes.  This  map  is  the  most  conclusive  argument  for  a  unified  and  compacted  r-ommuter  and  industrial  district  under  one  Metropolitan  District  Control 
of  utilities  and  industrial  development. 

\ 


Plate  3 


o     c     e:     A     N 


Tine    ZONE    MAP 

t>AN  FRANCiiCO  ts  COnnuTElR    Dl5T 


BON  a  ARNOLD 

t>A:^  FraivrCK£O7TeftN3K3RTAn0N  PROeLEM 

TO  TMC  HON   BOVRD  OT  SUPERVISORS 
CITY  Of   !><\N  FF?ANa5CO 


PLATE  3.    TIME   ZONE   MAP— SAN   FRANCISCO   COMMUTER   DISTRICT 

While  practically  half  of  San  Francisco  lies  within  the  30-minute  time  zone,  none  of  the  trans-bay  commuters  now  reach  land  within  that  time.  All  of  the  trans-bay  districts  are 
reached  within  an  hour,  the  same  as  San  Francisco.  But  for  the  former,  from  one-fourth  to  one-half  of  the  time  is  consumed  in  the  water  trip.  Shaded  contour  areas  and  time  points 
within  circles  indicate  how  far  commuters  may  ride  within  10-minute  intervals  from  the  center  of  the  business  district— Third  and  Market  Streets  (allowing  seven  minutes  to  the  Ferry 
terminal,  and  10  minutes  to  the  railroad  terminal  at  Third  and  Townsend  Streets).  The  inner  shaded  zones  correspond  to  the  running  time  by  electric  and  cable  lines.  Double  circles 
and  the  Peninsular  zone  particularly  refer  to  steam  lines.  Running  speed  is  indicated  directly  by  the  relative  distance  between  these  time  points.  For  steam  trains,  the  time  shown  is  on 
limited  local  trains  passing  by  only  the  less  important  stations.  Some  limited  expresses  make  26%  better  time,  and  way  locals  15%  slower  time  than  here  indicated.  With  the  same  charac- 
ter of  rapid  transit  equipment,  it  appears  that  from  20  to  30  minutes  more  running  time  will  always  be  necessary,  by  reason  of  the  water  trip,  for  trans-bay  commuters  to  reach  their 
homes  than  for  San  Franciscans,  but  that  no  such  handicap  exists  as  a  limitation  for  Peninsular  development. 


Plate  4 


PLATE  4.     FARE   ZONE   MAP— SAN    FRANaSCO   COMMUTER    DISTRICT 

Similar  to  the  Time  Zone  Map,  indicating  by  shaded  contour  lines  the  commuter  areas  covered  within  successive  fare  zones  of  5,  10,  and  15  cents,  etc.,  all  of  these  fares  figured 
from  the  present  terminal  points  in  San  Francisco,  viz. :  the  Ferry  terminal  and  the  railroad  depot.  From  the  business  district,  an  extra  5-cent  fare  should  be  added  for  commuters 
ridintr  to  the  Ferry  or  Depot  These  fares  are  the  lowest  regular  rates  obtainable  in  the  form  of  monthly  commuter  books.  For  the  San  Mateo  electric  line,  fares  are  indicated  m 
circles,  as  no  commutation  rates  are  available.  Revenue  per  passenger-mile  is  indicated  by  the  relative  distance  between  these  fare  zones  From  a  fare  standpoint,  San  FraiKisco 
Oakland  Berkeley,  and  Alameda  are  already  unified,  while  Peninsular  development  is  automatically  placed  under  a  handicap  of  considerably  over  100%  for  local  service,  and  200%  for 
express  Urvice  in  excess  of  the  basic  cost  of  transportation  within  the  S-cent  zone.  While  the  5-cent  commuter  fare  reaches  to  the  north  of  Berkeley,  a  fare  of  13  1-3  cents  is  charged 
for  the  same  time-distance,  that  is,  to  about  Redwood  Sution.  or  midway  between  the  corresponding  Umits  of  way  local  time  to  Beresford  (11.68  cents  fare),  and  limited  express  Ume 
to  Palo  Alto  (15.83  cents  fare). 


Plate  5 


PLATE  5.— GROWTH  AND  DENSITY  OF  POPULATION  OF  BAY  CITIES  BY  ASSEMBLY  DISTRICTS,  1890-1910. 

A  Study  of  this  nature  is  invaluable  in  indicating  the  migration  of  residents  to  and  from  various  local  districts.  Unfor- 
tunately, the  district  boundaries  have  been  changed  from  time  to  time,  but  it  is  quite  apparent  that  the  population  of  the  "inner 
city"  has  largely  scattered  to  the  suburbs,  especially  since  the  fire.  The  varying  spacing  between  the  cross  section  lines  indicates 
relative  density  in  persons  per  acre.  Incidentally,  the  map  shows  the  rapid  growth  of  Oakland,  Berkeley  and  Alameda  in  the 
meantime. 


n^ee 


LEGEND 


UNITED     RAILROADS 

CAR House 

NO 

coot 

•UTRO 

1 

■ 

OAK  AND  •RODtRICK 

II 

^ 

HAIOMT 

III 

A 

M«AUJ«TCR 

IV 

•*• 

TURK  AND  FILLMORC 

V 

■ 

PACIFIC  Ave. 

VI 

•A. 

WASHINOTONANO  HASON 

VII 

-* 

as*" AND  KENTUCKY 

VIM 

• 

14  •▼AND  UTAH 

IX 

M 

CASTRO 

X 

M 

••▼"AND  VALENCIA 

XI 

«• 

••""ANDVALCNCIA 

XII 

^ 

•CNCVA 

XIII 

S 

PRESIDIO  AND  FERRIES 

xtv 

^ 

GEARY  STREET 

XV 

CAUFORNIA  AND  HYDE 

XVI 

■ 

CANS  OM  MAmCT  ST  CAST  OF  SIXTH  NOT  COOtO 

NUHKia  INDtCATC  MININUH  lUtUiAR  MIAOWMY 

RUSH    HOUR    H«AOWAV 
"**'*"  NORMAL  OAT  HtAOWAY 

-       1 

SCALE  OF  FEET 

0      MM  »ooo    aoo>  4aoo  mo 

ju UY  .  11 , loia 

SCHfLDULC 


DISTRIBUTION  OF  CARS 

AT  THE  RUSH  HOUR  5-15  PM 

ACCOMPANYING  TMC  REPORT  OT 

BIONJARNOLD 

OHTHt 

SAN  FRANCISCO  TRANSPORIAnON  PROBLEM 

TO  THE  HON.BOARD  OF  SUPERVISORS 

CITY  OF  SAN  FRANCISCO 


PLATE  6.— DISTRIBUTION  OF  CARS  THROUGHOUT  THE  CITY  DURING  RUSH  HOURS  AND  RESULTING  HEADWAY. 

Showing  location  according  to  schedule  of  all  cars  at  5 :15  p.  m.  Cars  operating  out  of  the  various  car  houses  are  indicated  by  distinct  characters,  shown  in  the  legend,  except  on 
lower  Market  Street,  where  they  are  so  close  as  not  to  permit  coding.  Scheduled  headway  is  also  indicated  for  both  rush  hours  and  for  midday,  i.  e.,  the  average  headway  resulting  from 
the  schedules  in  operation,  assuming  reasonably  uniform  dispatching.  Note  the  congestion  resulting  from  Western  Addition  lines  converging  into  Market  Street  Geary  Street  line  is 
omitted,  as  the  operating  schedule  has  not  been  permanently  established. 


Plate  7 


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PLATE  7.— TYPICAL  RECORD  OF  PASSENGER  COUNTS  AT  VARIOUS  THROATS  OF  OUTBOUND  RUSH-HOUR  TRAVEL. 


This  diagram  shows  with  what  degree  of  regularity  cars  are  operated,  maximum  loading  of  cars  as  compared  with  seats,  results  of  delays  m  mcreasing  car  loading,  variation  m  riding 
habit  during  the  rush  hour,  the  comparatively  small  volume  of  traffic  toward  the  Ferry,  the  peculiar  uniformity  of  California  Street  cable  travel  as  compared  with  the  wide  fluctuation  m 
travel  on  electric  lines,  and  the  actual  headway  along  trunk  lines  resulting  from  the  operation  of  tributary  routes.  Note  the  great  necessity  for  the  avoidance  of  delays  so  as  to  make 
uniform  headway  possible,  as  long  gaps  between  cars  usually  result  in  excessive  car  loads. 


Plate  8<  a> 


TYPICAL  TRIP    COUNTS 
EVENING  RUSH  HOUR 

/MXOMPANYINO  THt   REPORT  Of 

BION    J  .ARNOLD 

SAH  FRAMaSCOTRAKSPORTATlON  PROBUM 
TO  THE  HON.  BOARD  OF  SUPERVISORS 
CITY  OF  SAN  FRANCISCO 


PLATE   8(a)— TYPICAL   TRIP    COUNTS    BY    INDIVIDUAL   ROUTES 


Graphical  record  of  .he  results  of  trip  counts,  showing  the  compete  route  characteristics    1^^^^^ 
total  load,  seating  capacity,  standing  load,  total  and  average  H^^JS^^.  h*"'-  ™""'"S  '™'  ^  ^^^^^^^  ^e  conductor.     Every  trip  during  the  day  is  not  plotted-only 

^pU^tH^^tf I^ci'LHou^lJ^^^^^^^^^^  o^%rrea&rortt  tT-hLf  ^-o'syrtkXrom'^  ir.  indicated  by  circl/andVs  h^  dots  on  the  plan 

"""""C;^^^.  "^^erate' H;.  typical  of  Missio^n  routes   f^^^^^^'^^^^^^P^t^^^^  If^^fofa^nlS'^^yStf  c^rl^Tfhe^  1n^^^^^^  "^^^J^ 

^ire^'v^a^rini  ir«i?fes'°;e'r  "pS^^ertVh;Sti7aS;"L'^e^S^^  SsTv^  IZi^tt  about  Silver  X/enue  and  very  light  load  beyond  I.e  Street  indicates  the 

need  of  a  short-run  line  for  relief.    Onondaga  Avenue  is  the  logical  turn-back  point. 


Plate  8(b) 


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TYPICAL  TRIP    COUNTS 
EVENING  RUSH  HOUR 

ACCOMPANYING  THE  REPOfTT  OT 

BION  J. ARNOLD 
SAN  FRANCtSCOTBANSPORlXTION  PIKWLEM 
TO  THE  HON. BOARD  OF  SUPERVISORS 
CITY  OF  SAN  FRANCISCO 


PLATE  8(b)  —TYPICAL  TRIP  COUNTS  BY  INDIVIDUAL  ROUTES. 

For  General  Characteristics  See  Plate  8  (a). 

Br'wnt  Street.  Short-run  line  with  excessive  overload  and  low  speed  due  to  frequent  stops;  average  passenger  ride  above  the  ordinary,  although  the  car  haul  is  very  short,  and 
the  large  number  of  passengers  riding  to  the  outer  terminus  indicates  the  need  of  extension  of  the  line  south  in  Mission  Street.  The  heavy  exchange  of  passengers  and  particularly  the 
large  number  of  transfer  passengers  boarding  at  16th  Street  is  an  indication  of  the  desirability  of  a  parallel  route  from  Kentucky  Street  out  Mission  or  Bryant  dunng  the  rush  hour. 

The  trip  counted  was  the  heaviest  of  the  day.  _  ..        ,„,.,.,  ^-    n     i.i.        x*      i     _^t      r  i-        t.  .       ^  j-  *•     *i 

Fillmore  and  Sixteenth.  Typical  cross-town  line  carrying  transfer  load  of  41%  of  cash  collected.  Standing  load  for  practically  the  errtire  length  of  hne,  but  not  distinctly  ex- 
cessive at  any  time.    Speed  low  due  to  many  stops  and  steep  hills.    Heavy  load  carried  to  end  of  line  transfers  to  Fillmore  Hill  extension.    Trip  counted  about  average  for  the  hour. 


Plate  9 


PLATE    9— PASSENGER    FLOW    FOR    THE    ENTIRE    SYSTEM. 

Indicating  the  relative  importance  of  the  various  streets  as  thoroughfares  for  outbound  rush  hour  travel  as  shown  by  the  widths  of  the  lines.  The  heavy  out- 
bound traffic  on  Market  and  Mission  Streets  is  apparent,  as  compared  with  streets  south  of  Mission  and  with  some  of  the  Western  Addition  streets.  Ferry-bound  traf- 
fic is  light  as  compared  with  outbound  Market  Street  travel  but  is  heavier  than  any  other  street  except  Mission  Street  The  gradual  decrease  in  car  load  towards  the 
outer  termini  clearly  indicates  that  car  service  should  be  tapered  off  to  follow  traffic  needs. 


PUteS 


PLATE  9— PASSENGER  FLOW  FOR  THE  ENTIRE  SYSTEM. 


Indicating  the  relative  importance  of  the  various  streets  as  thoroughfares  for  outbound  rush  hour  travel  as  shown  by  the  widths  of  the  lines.  The  heavy  out- 
bound traffic  on  Market  and  Mission  Streets  is  apparent,  as  compared  with  streets  south  of  Mission  and  with  some  of  the  Western  Addition  streets.  Ferry-bound  traf- 
fic is  light  as  compared  with  outbound  Market  Street  travel  but  is  heavier  than  any  other  street  except  Mission  Street  The  gradual  decrease  in  car  load  towards  the 
outer  termini  clearly  indicates  that  car  service  should  be  tapered  off  to  follow  traffic  needs. 


Plate  10 


PLATE  10.— FOUR-TRACK  PLAN  OF  STOPS  AND  STATIONS  FOR  LOWER  MARKET  STREET  AS   RECOMMENDED,  PLAN  A. 

This  plan  involves  relocating  and  lengthening  some  of  the  present  safety  stations,  thereby  securing  better  distribution  of  service.  "Near  side"  stops  only  are  contemplated,  thus 
abolishing  many  unnecessary  stops  now  made,  and  two-car  tandem  stops  are  used  at  heavy  traffic  points.  The  rearrangement  of  the  Ferry  loop  terminal  is  not  considered  in  this  study. 
West  of  Sixth  Street  a  break  is  made  in  the  drawing  so  as  to  include  McAllister  Street  intersection.    One  car  is  indicated  at  every  possible  stop. 


Plate  1 1 


GENERAL     DESIGN     AND    ARRANGEMENT. 


PLATE     11.— MUNICIPAL     RAILWAY     CAR, 

The  design  of  this  car  represents  a  marked  departure  from  previous  San  Francisco  practice  in  the  provision  of  drop  platforms,  prepay  type,  with  an  open  "California"  t3T)e  body 
Particular  attention  has  been  given  to  the  provision  for  rapid  loading,  essential  in  San  Francisco;  by  proper  shapmg  of  the  guide  raihng  and  the  use  of  a  small  master  contro  ler,  an  ample 
lnul^r^6:^T^  Similarly,  on  the  forward  end,,  with  the  g-d.  railing  behind  the  motorm^^^^^^^^  to    h 


Plate  12 


7' 4 


-55:^ 


6-«-' 


•wi 


tmtttMP  . 


CLASS      101-160 
A 


CLASS  1500-1549 

B 


SCALE  Of  rtCT 


u& 


CLASS   1550  •174a 

C 


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nil 


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LAT^5T  CHICA69  CAR. 
0 


mOPOSED  REARRANGEMENT 
CLASS  iS00-IS4Q 

c 


•TORAOt      k^ACE 


»— 2«— C 


-sor- 


PRESENT  ARRANGEMENT 
CLASS  1300  1425 


PROPOSED  RE-CONSTRUCTIQN 
CLASS    1300- 1*23 

F 


•CAU  or  rcKT 
1     t     I     t     I    t     f 


IMPROVEMENTS  IN  PLATFORM  AND 
SEATING   ARRANGEMENT 

PRESENT  ROLUNG  STOCK 

ACCQMPANVINO  THE  Re  PORT  Of 

BION  J  ARNOLD 

OH  TMC 

SAHFRANaSCO  TRANSPORTATION  PROBLEM 

TO  THE  HON.  BOARD  OF  SUPERVISORS 

CITY  OF    SAN  FRANCISCO 


PLATE   12.— RECOMMENDED   IMPROVEMENTS   IN  PLATFORM  AND   SEATING  ARRANGEMENTS,  PRESENT  UNITED   RAILROADS   CARS. 

Ample  platform  space  and  comfortable  standing  capacity  constitute  important  features  of  high  class  equipment.  These  rearrangements  in  platform  apparatus  are  recommended  as  an 
alternative  to  lengthening  the  platforms,  as  was  done  in  Chicago  on  cars  of  the  McAllister  Street  type.  Proposed  arrangements  are  shown  both  with  and  without  a  fare  box.  Note  the 
increase  in  platform  storage  space  provided  at  entrance  by  the  proposed  plans.  To  increase  the  loading  speed,  it  is  necessary  to  either  remove  the  bulkhead  or  move  the  controller  on  all 
cars  of  1500  and  1550  classes.  The  latest  car  used  in  Qiicago,  Plan  D,  has  platforms  fully  22  inches  longer  than  most  of  the  large  San  Francisco  cars,  and  can  be  loaded  very  rapidly, 
due  to  the  unobstructed  passageways  provided.  An  aisle  27  inches  in  width,  the  same  as  on  the  Municipal  car,  has  proven  satisfactory.  Plan  E  shows  the  proposed  rearrangement 
of  the  1500  class,  using  a  seating  plan  similar  to  the  Municipal  car,  with  the  "Cleveland"  fare  box  railing.  The  1300  class  may  be  reconstructed  into  a  prepayment  car  by  lengthen- 
ing platforms,  as  shown  in  Plan  F.  /^ 

•i 


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GENERAL     PLAN  AND  F*nonLE 

MARI\ETST  E)a"ENSIONTLINrCL 

UNOcn  TWIN    rcAKS 

*ccor>if«w«nMS  thc  ncrowTor 
BION     J    ARNOCO 

«IM      TMC 

SAN  fRANCISCO    TUNNEL    PROBLEM 

TOTttLhON.  BOARD  Or  SUPEKV150R3 

CITY  or  5AN  mANcieco. 


PLATE  13.— MARKET  STREET  EXTENSION  TUNNEL  UNDER  TWIN  PEAKS,  GENERAL  LINE  PLAN  AND  PROFILE. 

Showing  alignment,  grades,  distances,  easements,  stations,  portals,  and  proposed  connections  discussed  in  Chapter  11.     Grade  separation  of  the  future  right- 
**       **  .  6         »  of-way  south  of  the  portal  is  indicated.    This  plan  corresponds  to  Plan  5B. 


Plate  14 


PLATE    14.— DETAILS   OF   MARKET   STREET   EXTENSION   TUNNEL  UNDER  TWIN  PEAKS. 

Plan  and  profile,  Otis  Street  to  Eighteenth  Street,  showing  in  some  detail  the  design  and  track  layout  of  the  Market  Street  section.  Providing  for  a  side  platform  station  at  Church 
Street  designed  to  permit  future  transfer  facilities  to  a  sub-level  two-track  express  bore  to  be  built  on  south  side  of  Market  Street.  Center  island  platform  at  Eureka  Valley  station  per- 
mitting a  future  local  reservoir  station  at  the  portal  of  the  proposed  Mission-Sunset  tunnel.     Contour  extension  of  Market  Street  contemplated. 


Plate  15 


PLATE  15.— DETAILS  OF  MARKET  STREET  EXTENSION  TUNNEL  UNDER  TWIN  PEAKS. 

Plan,  profile  and  details  of  southwest  section,  omitting  tangent  section  of  bore  under  Twin  Peaks.    Arrangement  of  Laguna  Honda  station  detailed  as  to  first  and  second  construc- 
tion stage,  providing  for  most  convenient  cross-town  transfer  facilities  consistent  with  the  possible  elevation  of  the  main  bore  at  this  pomt 


Plate  16 


PLATE   16.— ALTERNATIVE  PLAN  AND   DETAILS  OF   MARKET   STREET   EXTENSION  TUNNEL. 

Alternative  development.  Plan  and  profile  for  present  tunnel  construction  terminating  at  Eureka  Street,  with  possible  surface  track  connections,  showing  outlet  of  tunnel  to  four 
tracks  in  upper  Market  Street.    This  involves  the  contour  extension  of  Market  Street  now,  with  a  possible  further  extension  out  of  Eureka  Valley. 

Details  of  future  extensions  and  developments,  showing  provision  for  four-track  express  bore— Project  B,  track  connections  mto  a  future  four-track  subway  m  lower  Market 
Street,  typical  branch  connections  to  the  Mission  and  Western  Addition,  local  return  loop  at  Castro  Street,  and  subway  connections  to  Mission-Sunset  tunnel. 


Plate  17 


PLATE    17.— EFFECT    OF    TWIN    PEAKS    TUNNEL    ON    LOCAL    RUNNING    TIME. 

Contour  niaj)  of  San  I<>ancisco.  showing  time  zones  resulting  from  local  operation  through  the  tunnel  as  compared  with  the  time  zones  of  present  lines.  Shaded 
areas  indicate  slopes  greater  than  \OVf  and  25 7r,  respectively,  for  the  area  affected  by  this  project.  White  lines  indicate  Market  Street  extension  boulevard,  and 
the  suggested  Seventh  Avenue  connecting  boulevard  down  the  Peninsula  and  to  the  beach.  Note  that  only  one  half  of  the  city  lies  within  the  present  30-minutc 
zone  and  that  the  tunnel  extends  this  zone  nearly  to  the  beach. 


INTENTIONAL  SECOND  EXPOSURE 


Plate  1" 


MAP 

SHOWINe    EFFECT  OF 

TWIN    PEAKS   TUNNEL 

ON    LOCAL    RUNNING      TIME 


LEGEND 

SL-OPEe    UNDER     IO% 
»  lOji  TO  2S<^ 

OVER     2SJ^ 

ONLV     S  V^.  PORTION    OF  C'TT    BCVOMD 

FRrSfcNT     30M(.N'     Time-    ZOlsiE 
THUS      iNDlCATElD 

($;•)  RUNNINS?    TIME     IN 

^^O^a       f^'NUTES    FROM    TWiRD 
AND      MARKET      S"r3 

PROPOSED        &TA.T  iOM&. 


"-•—         TA-lN     PEA«'>S    TUNNEL 

AND  MAf?KET  ST    SUBWAY       J 

RAPID      TRANSIT     UINSL' 

PRESENT     CAW      LIUES       1 

POSSIBLE 


I'l    A  1 


Klii-.C    I     ()l      r\\l\     l'i:Ak>     !lN.\i:i,    n\     I  .  ){    \|.    Kl    NXI.\(.     IIMI-. 


('<  mil  'ur 
ai\-;i>    iiidio.itr 

tlu-     SUJ4tiA.>tll| 

/OIK-   .-iikI   that 


inaji  t>\    San    l-'raiici-i-«>.   -liduinu   iiiin.-  /mik'-   ix'-uliinii    from   l<>cal   <  ipv'rati<  in  iliroimli    li-  lumu'l  a-  o<  iiiiparrd  with  tlu-  tinu-  .'<>iu--  .>i  ]irr 
-lop^'-   --ifcaUT    than    \\V '    and   25' '  .    ri'>i»c-ctivcl\-.    t.»r   tlic   ai\'a   attcctcd  1>\    tlii-   pruH-ci.     Wliil^'   liiu-   indii'ati-    Markii    Strcit    r\ii-n- 
ScNuiili" Aviinu-  i-«mni.-otin,u   lionKxaial   .l-.un   tlu-    IVnin-nla  and   t"  tlu-    iK-acli.      Xcti'    that    "id>    .uk-    half   <>i    tlu-    cil>     lir-    within    tlu- 
llu-  tninii-1   i-\t(.'nd>   thi^   /<»iu-  nrar]\    to  tlu-  hi-acli 


-cut  !inc<-.      Shaded 

i«in   l»'>uK-\ard.  and 

l)r«.--«.-nt    3(^-niinutc 


Plate  18 


secnoHM.     view      

anowMC  nuvKiNO  tv  ccNTOt. 

CURBS   10  ec    QUO  1 1     DOWN    TO    f    HeMKT 


ksonoRic  vicwormRKir^  plan 

TYPICAL  WIOC    TMOROUGHFARC 


BIONaAfaMQLO 

SAN  naVCISCDTTWCFOTWlON  P«C«lD1 

TO  THE  HON.  Ba^RO  OT  3UPtPVlS0R5 
OTY  OF  a^N  FRAJSCVSOa 


PLATE   18.— RAILWAY  PARKING   PLAN   RECOMMENDED    FOR  WIDE  THOROUGHFARE  SUCH  AS  VAN  NESS  AVENUE. 


Combining  the  attractive  features  of  a  central  parking  with  rapid  transportation.    Ample  roadway  width  preserved  for  four  lines  of  automobiles.     Ornamental  center  pole  con- 
•truction  with  electroliers.    During  parades  one  side  of  the  street  may  be  reserved  for  vehicles  and  the  other  for  parades  without  mterruptmg  oar  service. 


PUte  19 


ruTumt  CLCVATtD  »A>BIMftCII 

•JtlUHt  AROUND  CMBARCAOCRO  MAX 

CONNECT  Mtai  WITHTIKMIHAL  TKACK*. 

EMBARCAOERO 


ELEVATED  FERRY  TERMINAL  ^ 

roM  z 

MARKET  STREET  CARS 

LOWER  LEVEL 


STEUART 


SCA1.E. 

■00        zoo 


FERRY  TERMINAL  PLANS 

ACCOM^ANVINO  TmC  nCPOMT  OT 

BION  J.ARNOLD 

ON   THE 

SAN  FRANaSCOTBANSPORTAHON  PROBLEM 
TO  THE  HON. BOARD  OF  SUPERVISORS 
CITY  OF  SAN  FRANCISCO 


PLATE  19— FERRY  TERMINAL  IMPROVEMENT  PLANS. 


With  the  existing  terminals,  no  reserve  capacity  is  available  for  either  present  or  future  needs.  Two  plans  are  therefore  presented,  both  relieving  street  congestion  on  The  Em- 
barcadero  by  delivering  cars  to  the  upper  floor  of  the  Ferry  building.  One  plan  designed  for  more  permanent  utility  involves  the  evenmg  of  property  lines  on  East  Street ;  the  other 
recommends  simply  the  recession  of  the  protruding  Sacramento  Street  comer.  Both  provide  necessary  storage  track  for  lay-over  cars  meetmg  mcommg  boats.  Loop  and  storage  tracks 
are  now  badly  needed  on  both  north  and  south  side  surface  terminals  in  addition  to  further  capacity  of  the  Market  Street  loop.  With  the  extension  of  the  Ferry  building  a  correspond- 
ing extension  of  the  loading  front  will  be  necessary  as  provided  for. 


Plate  20 


PLATE    20 —COMPARATIVE    STATUS    OF    FRANCHISES    CLAIMED    1902    AND  OPERATED  1912. 

All  franchises  claimed  by  the  articles  of  incorporation  of  the  United  Railroads  in  1902  are  indicated  by  the  full  base  lines ;  while  the  superimposed  coding  indicates 
the  operating  status  in  1912  of  these  same  franchises.  Many  lines  have  been  abandoned,  while  in  other  cases  no  track  has  been  laid.  No  attempt  has  been  made  to 
show  leased  lines  or  to  indicate  overlapping  franchises.  The  status  of  the  Columbus  Avenue  franchises  is  important,  owing  to  its  value  as  a  proposed  direct  route  to  the 
Exposition  in  1915.  One  block  on  Kearny  Street  from  Pacific  Avenue  to  Broadway  was  not  claimed  by  the  United  Railroads  in  1902,  although  a  franchise  was  then 
existing. 


Plate  21 


TERMINAL  »«ANT« 
REVOCABLE  BY  STATE 


MOBTLY  PRIVAT*   «I«MT    OP  WAY 
PORTIONS     IN  LINCOLN  PARK 


LEGEND 

UNQUESTIONABLE  GRANTS 

PORTIONS  UNUSED  NO 
ABANDONMENTS  Fl  LEO •<»««»• 

ABANDONMENTS  FILED  AND 
ACCEPTED  BY  SUPERVISORS  -  - 

OPERATING  WITHOUT  FRANCHISE 
OR  DOUBTFUL 

ONE  TRACK  ABANDONED 

TRACK  NOT  OPERATED 
NO  FRANCHISE --- 

FORFEITURES  IN  SUPERIOR  COURT  •-«»»* 

OUTSIDE  OF  SAN  FRANCISCO 

COMBJNATiON  OF  ABOVE  SHOWN  TH US (s«a»o 


NOTE:  NO  ATTEMPT  TO  SHOW  OVER  LAPPSNO 
GRANTS     NOR    FORFEITURES  OF  UNES 
NEVER  CONSTRUCTED  .  MAP  SHOWS 
SECTIONS  NOT  OPERA(TED.0CT.I.I»ia 


scALe 

1000     ZpOO    aOOOFEET 


PRESEHTSTARISOFFRAHCHISEGRAHB 

BASED  UPON  OmClAL  FRANCHISE  BOOK 
UKITEDRAlLftOADS  ANOAFFIUATED  COMRMilfS 

ACCOMPANYING  THE  REPORT  Of 

BION  J.ARNOLD 

ON    THE 

SAN  FRAHCJSCO  TRAHSPORWION  PROBLEM 
TO  THE  HON.BOARD  OF  SUPERVISORS 
CITY    OF    SAN  FRANCISCO. 


PLATE  21— PRESENT  STATUS  OF  FRANCHISE  GRANTS. 
On  this  map  are  shown  by  graphical  code  (a)  all  franchises  granted  to  the  United  Railroads,  underlying  companies^and  leased  lines,  also  (b)  routes  operated 
withoutfranchi^es  or  where  franchises  are  doubtful  in  accordance  with  the  existing  record  of  the  municipal  franchise  book.  Over-lappmg  franchises  have  not  been 
Tonsfdered  The  status  of  abandoned  trackage  is  important,  especially  where  portions  of  franchises  have  been  abandoned  without  official  notice  being  filed  with  and  ac- 
Spted  by  the  Supervisors  This  raises  the  question  of  validity  of  the  remaining  portions  of  such  routes.  Also  of  such  routes  now  operated  as  have  not  been  con- 
structed  within  the  time  limit  set  by  law. 


Plate  22 


FRANCHISE  EXPIRATIONS 

BASED  UPON  OmCIAL FRANCHISE  BOOH. 
SAN  FRANCISCO 

ACCOMPANYING TMC  REPORT  Of 

BION  J. ARNOLD 

ON    THE. 

SAHFRAHOSCO TRANSPORTATION  PROBLEM 

TO  THE  HON.BOARD  OF  SUPERVISORS 

CITY    OF    SAN  FRANCISCO. 


PLATE    22— RECORD     OF    FRANCHISE    EXPIRATIONS. 


This  plate  interprets  graphically  the  record  of  t^^^  Obv'-f/,  ':;':J^>:^_ 

systfmwm  be  p«ctSy  disrupted.    Some  question  exists,  however,  as  to  the  exact  date  of  exp.rauon-whether  1929  or  1932.     (See  Figure  101.) 


Ill 


'i 


% 

Date  Due 

TUr-ry 

■H- 

1 

% 

1  .^---7  ^ 


COLUMBIA  UNIVERS  TY  L  BRARIES 


0044268513 


if 


END  OF 
TITLE 


